Resolution No. 3047 (Item 9.r.)RESOLUTION NO. 3047
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF BAYTOWN, TEXAS,
ADOPTING THE FOLLOWING ANNEXES AS COMPONENTS TO THE CITY OF
BAYTOWN'S EMERGENCY OPERATIONS PLAN: ESF6: MASS CARE AND
HUMAN SERVICES ANNEX, ESF 13: PUBLIC SAFETY AND LAW
ENFORCEMENT ANNEX, ESF 14: COMMUNITY LIFELINES AND PRIVATE
SECTOR COORDINATION ANNEX, TERRORISM INCIDENT ANNEX, DISASTER
FINANCE AND COST RECOVERY ANNEX, AND RECOVERY SUPPORT ANNEX;
AND PROVIDING FOR THE EFFECTIVE DATE THEREOF.
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BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF BAYTOWN, TEXAS:
Section 1: That the City Council of the City of Baytown, Texas, hereby adopts the following
annexes as components to the City of Baytown's Emergency Operations Plan: ESF 6: Mass Care and Human
Services Annex, ESF 13: Public Safety And Law Enforcement Annex, ESF 14: Community Lifelines and
Private Sector Coordination Annex, Terrorism Incident Annex, Disaster Finance and Cost Recovery Annex,
Volunteer and Donations Management Support Annex, and Recovery Support Annex. Said Annexes are
attached hereto as Exhibit "A" and incorporated herein for all intents and purposes.
Section 2: This resolution shall take effect immediately from and after its passage by the City
Council of the City of Baytown, Texas.
INTRODUCED, READ and PASSED by the affirmative vote of the City Council of the City of
Baytown this the 13`i' day of November, 2025.
P
ANG EIIA'IACKSON. Ch-vTlerk
APPROVEID AS TO.
SCOTT LEMOND, City Attorney
R Ordinances and Resolutions Resolution Drafts City Counci1'2025 11-13 Annex Adoption Resolution (002) doex
CITY OF BAYTOWN
Recovery Support Annex
BAYTOWN FIRE DEPARTMENT
OFFICE OF EMERGENCY MANAGEMENT
MAY 2025
"Exhibit A"
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Recovery Support Annex – 2
Approval and Implementation
City of Baytown, Texas
Recovery Support Annex
This annex is hereby approved for implementation and supersedes all
previous editions.
Frank O. Simoneaux, Jr., P.E., MBA Date
Director, Public Works and Engineering
Martin Scribner, MURP, AICP, CFM Date
Director of Planning and Development Services
David J. Alamia Jr., MPA, CEM Date
Emergency Management Coordinator
05/05/2025
05/02/2025
04/28/2025
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Recovery Support Annex – 3
Record of Changes
CHANGE # DATE OF
CHANGE DESCRIPTION CHANGED BY
01 07/30/2025 Clarified debris operations
within Parks Department. D. Alamia
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Recovery Support Annex – 4
Table of Contents
Approval and Implementation .......................................................................... 2
Record of Changes ......................................................................................... 3
Primary and Support Agencies ......................................................................... 7
Primary Agency .......................................................................................... 7
Support Agencies ........................................................................................ 7
Authority ...................................................................................................... 7
Purpose ........................................................................................................ 7
Scope ........................................................................................................... 7
Explanation of Terms ...................................................................................... 8
Acronyms ................................................................................................... 8
Definitions.................................................................................................. 9
Situation and Assumptions ............................................................................ 11
Situation .................................................................................................. 11
Assumptions ............................................................................................. 11
Concept of Operations .................................................................................. 12
General ................................................................................................... 12
Strategy 1 – Implement Recovery Support Functions (RSFs) .......................... 13
Community Planning and Capacity Building RSF ......................................... 13
Economic RSF ........................................................................................ 14
Health and Social Services RSF ................................................................ 14
Housing RSF .......................................................................................... 14
Infrastructure Systems RSF ..................................................................... 15
Natural and Cultural Resources RSF ......................................................... 15
Strategy 2 – Establish Recovery Priorities .................................................... 15
Strategy 3 – Implement Short-Term Recovery Programs and Services ............. 16
Issues a Local Disaster Declaration .......................................................... 16
Implement Disaster Finance and Cost Recovery Process ............................. 16
Establish and Coordinate Damage Assessment Teams ................................ 17
Conduct a Rapid Damage Assessment (RDA) ............................................. 18
Prepare and Submit a Disaster Summary Outline ....................................... 19
Request for Assistance ............................................................................ 19
Conduct a Preliminary Damage Assessment .............................................. 21
Coordinate Disaster Assistance Programs .................................................. 21
Support Local Recovery Centers and MARCs .............................................. 23
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Strategy 4 – Implement Intermediate Recovery Programs and Services ........... 24
Implement Public Infrastructure Restoration .............................................. 24
Evaluate Community Needs ..................................................................... 24
Resumption of Essential Government Functions and Community Services ..... 24
Restoration of Local Business and Industry................................................ 25
Develop a Post-Disaster Long-Term Recovery Plan ..................................... 25
Evaluate Interim/Permanent Housing Needs .............................................. 25
Demobilize Mass Care Operations ............................................................ 26
Support Community Repopulation ............................................................ 26
Strategy 5 – Implement Long Term Recovery Programs and Services .............. 26
Strategy 6 – Implement Actions by Phases of Emergency Management ........... 27
Mitigation .............................................................................................. 27
Preparedness ........................................................................................ 27
Response .............................................................................................. 28
Recovery .............................................................................................. 28
Organization and Assignment of Responsibilities .............................................. 28
Organization ............................................................................................. 28
Assignment of Responsibilities .................................................................... 29
Direction, Control, and Coordination ............................................................... 35
General ................................................................................................ 35
Lines of Succession ................................................................................ 36
Readiness Levels .......................................................................................... 36
Level 4 – Normal Conditions .................................................................... 36
Level 3 – Increased Readiness ................................................................. 36
Level 2 – High Readiness ........................................................................ 37
Level 1 – Maximum Readiness ................................................................. 37
Information Collection, Analysis, and Dissemination ......................................... 37
Administration, Finance, and Logistics ............................................................ 38
Administration and Finance ........................................................................ 38
Logistics .................................................................................................. 40
Plan Development and Maintenance ............................................................... 40
Development ............................................................................................ 40
Maintenance ............................................................................................. 40
Procedures ............................................................................................... 41
Training and Exercises ............................................................................... 41
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Training ................................................................................................ 41
Exercises .............................................................................................. 41
References .................................................................................................. 41
Appendices and Attachments ......................................................................... 42
Appendix 1 – Disaster Summary Outline (DSO) ............................................ 43
Appendix 2 – Damage Assessment Reporting Tools ....................................... 49
Appendix 3 – Long Term Recovery Groups ................................................... 59
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Primary and Support Agencies
Primary Agency
Baytown Fire Department, Office of Emergency Management
Support Agencies
Baytown Public Works and Engineering, Baytown Planning and Development
Services, Baytown Human Resources, Baytown Finance Department, Baytown Parks
and Recreation Department, and Baytown Health Department
Authority
• See Section 1 of the Basic Plan for general authorities.
• City of Baytown, Code of Ordinances, Chapter 22 – Emergency Management
• Public Law 93-28, Robert T. Stafford Disaster Relief and Emergency
Assistance Act, as amended.
• Title 44 (Emergency Management and Assistance), Code of Federal
Regulations.
Purpose
The purpose of the Recovery Support Annex is to define the operational concepts,
organizational arrangements, responsibilities, and procedures to accomplish the
tasks required for the local government and its citizens and businesses to recover
from a major emergency or disaster.
The Recovery Support Annex promotes effective approaches to prepare for and
manage disaster recovery. It includes high-level priorities, strategies, and
coordination that is designed to guide recovery actions that result in a resilient,
safe, physically accessible, sustainable, and economically strong community.
This plan links City of Baytown, faith-based organizations (FBOs), community-based
organizations (CBOs), nonprofit organizations, private sector partners, and
philanthropic funders to state and federal recovery guidance and potential post-
disaster assistance.
Scope
This Annex was developed to serve as guidance to City of Baytown departments
and personnel assigned recovery responsibilities and how to effectively coordinate
the recovery process and engage key stakeholders and partners.
The Annex includes pre-disaster recovery planning guidance that spans the short-
term, intermediate, and long-term phases of recovery. It addresses actions for long-
term community capacity building and planning; housing restoration and economic
recovery; infrastructure and lifeline restoration and reconstruction; continued
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provision of public safety, security, and community services; and protection of natural
and cultural resources.
The Recovery Support Annex is intended to be a jurisdiction-wide, multi-agency plan
for achieving coordinated recovery. It is flexible and scalable and can be used in any
incident, regardless of size, complexity, and declaration type (e.g., local, state,
presidential).
The plan is intended primarily for stakeholders in the City of Baytown who will be
directly involved in implementing disaster recovery. Stakeholders may include
members of the public, COADs/VOADs/LTRGs, philanthropic funders, utilities, private
sector partners, partners at various levels of government, and others with a general
or specific interest in disaster recovery in the Baytown community.
Explanation of Terms
Acronyms
AAR-IP After-Action Report / Improvement Plan
BFD Baytown Fire Department
BPD Baytown Police Department
CDBG Community Development Block Grant
CFR Code of Federal Regulations
CIR Critical Information Requirement
COAD Community Organizations Active in Disasters
COG Continuity of Government
COOP Continuity of Operations Plan
CPCB Community Planning and Capacity Building
DAT Damage Assessment Teams
DC District Coordinator
DFCR Disaster Finance and Cost Recovery
DR Disaster Recovery
DRC Disaster Recovery Center
DSO Disaster Summary Outline
EAS Emergency Alert System
EEI Essential Elements of Information
EOC Baytown Emergency Operations Center
EOP Emergency Operations Plan or Basic Plan
EMC Emergency Management Coordinator
FBO Faith-Based Organizations
HIRA Hazard Identification and Risk Assessment
IA Individual Assistance
IAP Incident Action Plan
ICS Incident Command System
IMT Incident Management Team
IP Improvement Plan
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JFO Joint Field Office
JIC Joint Information Center
LNO/LOFR Liaison Officer
LTRG Long Term Recovery Group
MAP Mitigation Action Plan
MARC Multi-Agency Resource Center
MIT Mitigation
NCR Natural and Cultural Resources
NDRF National Disaster Recovery Framework
NIMS National Incident Management System
NRF National Response Framework
OEM Baytown Office of Emergency Management
PA Public Assistance
PDA Preliminary Damage Assessment
PIO Public Information Officer
PSC Planning Section Chief
PW Project Worksheet
PWE Baytown Public Works and Engineering
RSF Recovery Support Functions
SBA Small Business Administration
SITREP Situation Report
SITUL Situation Unit Leader
SOG Standard Operating Guide
TDEM Texas Division of Emergency Management
THIRA Threat and Hazard Identification Risk Assessment
VOAD Voluntary Organizations Active in Disaster
Definitions
Applicant Agent: The individuals who will be representing the jurisdiction in the
grant process. A Primary and Secondary Agent is designated. The EMC serves as the
Applicant Agent.
Community Organizations Active in Disaster (COAD): COAD is a supportive and
collaborative entity composed of community organizations, government
organizations, businesses, and volunteers that may have resources to assist in
disaster response and recovery operations, such as personnel, equipment, or
commodities.
Individual Assistance: Programs providing financial assistance to individuals,
families, and business owners in declared disaster areas whose property has been
damaged or destroyed and whose losses are not covered by insurance.
Long-Term Recovery Group (LTRG): The LTRG is a collaborative network of
community-based, faith-based, and nonprofit organizations; governmental
representatives; private sector partners; philanthropic funders; and other recovery
partners who are responsible for coordinating the management of the long-term
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recovery and provide additional long-term assistance to individuals and communities
affected by the disaster who do not have adequate resources to recover from the
disaster. The LTRG relies on financial capital raised through donations and/or grants,
materials, and both skilled and unskilled volunteer labor. The United Way of Greater
Baytown and Chambers County manages the local LTRG, known as the Baytown Area
and Chambers County Disaster Recovery (BACC-DR).
Post-Disaster Recovery Plan: This plan is developed after a disaster has occurred
to deal directly with the known consequences of that particular disaster. It is oriented
toward physical planning and urban design and includes specific details about
recovery projects, organizational priorities, and community recovery goals. A post-
disaster recovery plan should be developed specific to each disaster.
Pre-Disaster Recovery Plan: A PDRP provides a framework for leading and
managing recovery activities after a disaster. This may include providing human and
social services to disaster survivors, gathering data used to develop strategies for an
effective recovery, and organizing and managing resources for post-disaster recovery
activities. It can also be used to implement the post disaster recovery processes,
such as restoring housing, rebuilding schools and childcare services, recovering
businesses, identifying resources for rebuilding projects, returning social stability,
and coordinating other community planning processes.
Project Worksheet: A FEMA document that lists the specifications of an
approved PA project.
Public Assistance: Financial assistance to repair facilities and infrastructure
provided to governments, public institutions, and certain private non-profit agencies
that provide essential services of a governmental nature.
Recovery Support Function (RSF): RSFs comprise the coordinating structure for
key functional areas of assistance in the National Disaster Recovery Framework
(NDRF). They support local governments by facilitating problem solving, improving
access to resources, and by fostering coordination among state and federal agencies,
nongovernmental partners, and stakeholders.
Stafford Act: The Robert T. Stafford Disaster Relief and Emergency Assistance Act.
Voluntary Organizations Active in Disaster (VOAD): VOAD is a coalition of
nonprofit organizations that mitigate and alleviate the impact of disasters; provides
a forum promoting cooperation, communication, coordination, and collaboration; and
fosters more effective delivery of services to communities affected by disaster.
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Situation and Assumptions
Situation
As identified in the Baytown Hazard Identification and Risk Assessment /
Consequence Analysis Summary, which is outlined in the Basic Plan, Baytown is at
risk from a number of threats and hazards that have the potential for causing
extensive property damage. In the event that such damage occurs, planned damage
assessment and recovery procedures are essential for returning the community to
normal after a major emergency or disaster.
The Stafford Act authorizes federal disaster assistance to individuals (IA) and to
governmental entities (PA) in the aftermath of a major emergency or disaster and
outlines the types of assistance that may be made available. The majority of federal
disaster assistance programs are administered by state agencies.
The State of Texas does not have a specific disaster assistance program for
individuals and local governments similar to the Stafford Act. Pursuant to provisions
of the Texas Disaster Act, state agencies frequently aid local governments in the
aftermath of a disaster.
Federal assistance is governed by the Stafford Act and 44 CFR, part 206.
Assumptions
• Adopting and enforcing land use regulations and building codes can reduce
much of the structural damages and property loss which would otherwise result
from a disaster.
• The City of Baytown must be prepared to deal with a major emergency or
disaster until outside help arrives.
• Timely and accurate damage assessment to private and public property forms
the basis for requesting state and federal assistance for residents (Individual
Assistance or IA) and for repairs to infrastructure (Public Assistance or PA) and
should be a vital concern to local officials following a disaster.
• State and federal assistance may be requested to assist residents or
government entities. State assistance is typically in the form of operational
support such as equipment, manpower, or technical assistance. Federal
assistance, if approved, will generally be in the form of financial reimbursement
and will require considerable paperwork and take some time to deliver.
• Volunteer organizations active in disasters (VOADs) and Community
Organizations Active in Disasters (COADs) will be available to assist residents in
meeting some basic needs, but they will not be able to provide all needed
assistance.
• Damage assessment and recovery operations may commence while emergency
response activities are still underway.
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Concept of Operations
General
The City of Baytown’s disaster recovery can be conceptualized in three recovery
phases:
Figure 1: Recovery Phases
Pre-Disaster Preparedness and Transition to Recovery
The pre-disaster period includes preparedness activities taken in advance of an
incident to develop, support, and enhance operational capabilities to facilitate an
effective and efficient response and recovery from an emergency situation. Prior to a
disaster, this annex shall be developed and maintained and key recovery staff
members appointed. These individuals shall obtain training and develop operating
procedures for recovery activities. Requirements for personnel to staff damage
assessment teams and assist in recovery programs shall be determined and basic
training provided.
Recovery operations begin immediately after a disaster incident, concurrent with
response operations. As a result of this overlap, some emergency support functions
(ESFs) and RSFs may be carried out at the same time.
Short-Term Recovery
Short-term recovery is any activity that will return vital life-support systems and
critical infrastructure to minimum operating standards. It addresses health and safety
needs (beyond immediate rescue and life-safety), the assessment of the scope of
damages and needs, the restoration or interim provision of basic infrastructure and
essential services, and the mobilization of recovery organizations and resources.
Short-term recovery may last hours to days following an incident, and depending on
the scope of the disaster, it may last beyond a week.
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Intermediate Recovery
Intermediate recovery involves returning individuals, families, critical infrastructure,
and essential government or commercial services to a functional—if not pre-
disaster—state. Such activities are often characterized by temporary actions that
provide a bridge to permanent measures. Intermediate recovery may begin within
days of an incident and may last weeks or months afterward, depending on the
severity of the disaster.
Long-Term Recovery
Long-term recovery involves rebuilding or relocating damaged or destroyed social,
economic, natural, and built environments and moves toward self-sufficiency,
sustainability, and resilience to future disasters. The long-term recovery phase begins
once the community is in a position to begin planning for permanent reconstruction,
revitalization, and/or repurposing of the impacted area, and it may last for many
years, even as other functions of the community return to normal. Some long-term
recovery activities can begin almost immediately after an incident, as policy and
planning associated with short-term and intermediate-term actions will guide long-
term decisions.
Strategy 1 – Implement Recovery Support Functions
(RSFs)
Recovery Support Functions (RSFs) are critical functions necessary to sustain a
robust disaster relief and recovery capability. Each RSF is a critical function that is
assigned to a primary agency responsible for coordinating these critical functions
upon activation.
Community Planning and Capacity Building RSF
The City of Baytown’s lead agency responsible for coordinating the Community
Planning and Capacity Building (CPCB) RSF is the Baytown Planning and
Development Services Department. This RSF is also supported by the Baytown
Office of Emergency Management (OEM). This includes develop on long-term
community plans, such as Master Plans, Comprehensive Plans, Local Hazard
Mitigation Plans, and other long-range plans that incorporate disaster recovery
programs, services, and priorities. This may include the development of a post-
disaster recovery plan.
The objective of the Community Planning and Capacity Building (CPCB) RSF is to
enable the City of Baytown to effectively carry out community-based recovery
planning in a post-disaster environment. It strives to restore, strengthen, and
enhance the jurisdiction’s ability to plan for recovery, engage the community in the
recovery planning process, and build capacity (i.e., resources available to support
recovery) for plan implementation and recovery management.
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Economic RSF
The City of Baytown’s lead agency responsible for coordinating the Economic RSF is
the City’s Economic Development Manager and Baytown Municipal Development
District. This RSF is also supported by the Baytown Chamber of Commerce and
Baytown-West Chambers County Economic Development Foundation. This RSF will
coordinate Economic Recovery Funds provided by the U.S. Department of
Commerce, assist with SBA and Texas Workforce Commission Funds to support
disaster relief in economically stressed areas due to disaster.
The objective of the Economic RSF is to return economic and business activities to a
pre-disaster (if not better) state. This RSF also addresses developing new economic
opportunities that result in a sustainable and economically viable community.
Health and Social Services RSF
The City of Baytown’s lead agency responsible for coordinating the Health and
Social Services RSF is divided between the Health and Social service functions.
The Health RSF is coordinated by the Baytown Health Department responsible for
environmental health, the Baytown Fire Department responsible for emergency
medical services, and County Health Departments responsible for public
health/communicable disease control.
The Social Service RSF is coordinated by the Baytown Planning and Development
Services, Community Development Division which serves as a point of contact for
human services organizations that provide social services to local residents. Social
services are not typically provided by the City of Baytown, but rendered by
County/State Agencies and other community organizations.
The Health and Social Services RSF outlines the framework to support local
recovery efforts that address public health, healthcare facilities and coalitions, and
essential social services. Social services programs promote a more effective
recovery by supporting individuals and families affected by a disaster.
Housing RSF
The City of Baytown’s lead agency responsible for coordinating the Housing RSF is
the Baytown Planning and Development Services Department. This RSF is also
supported by the Baytown Area Housing Authority (BAHA). This RSF will coordinate
recovery efforts involving emergency shelters, temporary shelter assistance at
hotels, FEMA and HUD temporary housing solutions, housing missions involving
mobile homes, renter’s assistance, and rebuilding affordable housing.
The objective of the Housing RSF is to coordinate and facilitate the delivery of
resources to implement housing solutions that effectively support the needs of the
whole community and contribute to its sustainability and resilience.
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Infrastructure Systems RSF
The City of Baytown’s lead agency responsible for coordinating the Infrastructure
Systems RSF is the Baytown Public Works and Engineering Department. This RSF is
also supported by the Baytown Planning and Development Services Department
and Baytown Parks and Recreation Department.
The objective of the Infrastructure Systems RSF is to facilitate the restoration of
infrastructure systems (e.g., energy, water, wastewater, communications,
transportation systems, food production and delivery, government facilities,
utilities, sanitation, engineering, flood control, systems that directly support the
physical infrastructure of communities, and physical facilities that support essential
services) and services to support a viable, sustainable community. This RSF
improves resilience to and protection from future hazards through hazard mitigation
and disaster risk reduction programs.
Natural and Cultural Resources RSF
The City of Baytown’s lead agency responsible for coordinating the NCR RSF is the
Baytown Parks and Recreation Department. This RSF is also supported by the
Downtown Arts District and Baytown Historical Preservation Association. This RSF
will coordinate activities that involve environmental restoration, open-space
preservation, restoration of historical sites or facilities, and protection of natural
and cultural resources.
The Natural and Cultural Resources RSF facilitates the preservation, conservation,
rehabilitation, and restoration of natural and cultural resources consistent with
post-disaster community priorities. This RSF should be compliant with applicable
environmental and historical preservation laws and executive orders.
Strategy 2 – Establish Recovery Priorities
The overarching mission and vision for recovery will be established by the Mayor,
City Council, and City Manager in direct coordination with city departments, the
community, and key stakeholders.
Many recovery priorities will be unique to each disaster and will be integrated into a
Post-Disaster Recovery Plan during catastrophic disasters and presented to city
leadership and Council for approval and adoption. Some disasters that are smaller
in scale may only require these priorities to be integrated into Baytown EOC
Incident Action Plans (IAPs) as objectives or other recovery documents without
formal adoption.
Some short-term or intermediate recovery priorities may include the following:
• Deploy Debris Management Teams and Damage Assessment Teams to gather
data and information on the extent of damages and impacts to the
community.
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• Request Disaster Assistance and coordinate disaster relief to disaster
survivors.
• Assist disaster survivors with immediate needs and essential recovery
services.
• Establish a Disaster Recovery Center or Multi-Agency Resource Center
(MARC) to provide recovery services and disaster relief programs.
Some long-term recovery priorities may include the following:
• Repair, Restore, and Rebuild a disaster-resilient community and build back
better.
• Return to a new normal with key investments in community development and
infrastructure.
• Maximize disaster assistance and disaster relief programs to aid disaster
survivors and cost recovery efforts.
• Collaborate among private companies, insurers, and community organizations
that may be crucial to disaster recovery.
• Develop long-term economic development plans and strategic priorities to direct
economic investment during disaster recovery.
• Identify public–private partnerships and sources of funding to support local
business recovery.
Strategy 3 – Implement Short-Term Recovery Programs
and Services
Issues a Local Disaster Declaration
The Mayor of the City of Baytown will issue a disaster declaration to begin the
recovery process. A disaster declaration allows City officials to invoke emergency
powers to deal with the disaster and is required to obtain state and federal disaster
recovery assistance.
Guidance on issuing a local disaster declaration is provided in the Legal Support
Annex.
The City Manager in consultation with the Mayor may designate a Local Recovery
Manager to coordinate post-disaster recovery in catastrophic disasters that require
additional support to establish a new normal and build back better.
Implement Disaster Finance and Cost Recovery Process
All City Departments are required to adhere to the policy guidance provided in the
Disaster Finance and Cost Recovery Appendix. This includes maintaining a
Disaster Operations Time and Activity Log and all Force Account Forms to seek
reimbursement under FEMA’s Public Assistance (PA) Program.
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Costs may include labor, equipment, materials, and uninsured losses to damaged
facilities, properties, and infrastructure.
Establish and Coordinate Damage Assessment Teams
There are two-types of Damage Assessment Teams (DATs) utilized in the City of
Baytown: Public Property DATs and Private Property DATs.
The Baytown Public Works and Engineering Department and Planning and
Development Services Department will manage the damage assessment function by
organizing, training, and employing Damage Assessment Teams composed of
Building Inspectors for Individual Assistance (Private Property) and Engineering,
Utilities, and Facilities Maintenance personnel for Public Assistance (City-Owned
Property).
During operations, DATs will report to a Damage Assessment Unit Leader who will
compile and report team findings to the EOC Operations Section Chief.
Public Property Damage Assessment Teams (DATs)
The Public Works and Engineering Department will lead the rapid damage
assessments (RDA) and coordinate with TDEM and FEMA on the preliminary
damage assessments (PDA) of publicly-owned buildings, roads, bridges, and other
infrastructure following a disaster. Public Property DATs may include PWE staff from
Utilities, Engineering, and Facilities Maintenance.
The Public Works and Engineering Department and Facility Maintenance personnel
shall inspect damaged publicly-owned structures. Inspections are conducted to
identify unsafe structures and, if necessary, take actions to restrict entry and
occupancy until the structures can be made safe.
Damaged publicly-owned buildings posing an immediate threat to public health and
safety should be appropriately posted to restrict public access pending repairs or
demolition.
Local ordinance 1967 provides for expedited demolition of structures that pose a
threat to public health during emergency situations.
Private Property Damage Assessment Teams
Residential and Business Damage Assessment Teams
The Baytown Planning and Development Services Department will conduct damage
assessments to residential properties and local businesses involving non-flood
incidents. These DATs may consist of building inspectors and neighborhood
protection officers. PDS may request assistance from PWE to conduct private
property residential and business damage assessments.
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National Flood Insurance Program (NFIP) Damage Assessment Teams
Public Works and Engineering will establish an NFIP Damage Assessment Team
during major flooding incidents to assess damages to residential property. This will
include Substantial Damage Determinations, Repetitive Flood Losses, and Severe
Repetitive Flood Losses. PWE will coordinate with the Baytown Planning and
Development Services (PDS) Department regarding building codes, inspections, and
requesting assistance for damage assessments.
Conduct a Rapid Damage Assessment (RDA)
This type of damage assessment is also known as a Windshield Damage
Assessment and takes place within hours of an incident providing a quick evaluation
of a disaster impacted area.
The Baytown Damage Assessment Teams (DATs) will utilize standardized forms and
web apps to collect and submit Damage Assessment Reports. See Appendix 3.
The data collected in this process is used to request a federal disaster declaration
and is incorporated into the Disaster Summary Outline (DSO) submitted to the
State.
Public Assistance State of Texas Assessment Tool (pSTAT)
Public Property Damage Assessment Teams (DATs) will utilize reports submitted by
City Departments on damages to city facilities and an online TDEM webapp, pSTAT,
which is based on a standardized site assessment form. The City of Baytown may
utilize an in-house developed ArcGIS and Survey123 webtool to supplement pSTAT.
Each facility and infrastructure that is assessed will be uploaded into the pSTAT for
data collection and compilation. pSTAT data collected will be used to complete the
Disaster Summary Outline (DSO), which is reported in terms of dollars and impacts
in the following categories:
1) Emergency services
2) Debris removal and disposal
3) Roadways and bridges
4) Water control facilities
5) Buildings, equipment, and vehicles
6) Publicly owned utilities
7) Parks and recreational facilities
Individual Assistance State of Texas Assessment Tool (iSTAT)
Damages to Private Property, such as residential and business sites, will be
collected using the TDEM web app, iSTAT, which is based on a standardized site
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Recovery Support Annex – 19
assessment form. The City of Baytown may utilize an in-house developed ArcGIS
and Survey123 webtool to supplement iSTAT. Each residential property or business
that is assessed will be uploaded into the iSTAT for data collection and compilation.
Residential damage assessments will be categorized by:
• Type of housing unit: single family, mobile homes, multi-family units.
• Type of damage: destroyed, major damage, minor damage, affected
• For each type of housing unit, an estimate of average percent of units covered
by insurance must be provided.
Business damage assessments will be categorized by:
• Business name and address
• Owner’s name and phone number
• Type of business
• Estimated dollar loss
• Amount of anticipated insurance
• Value of business
• Fair replacement value of
(a) Contents
(b) Structure
(c) Land
• Number of employees
• Number of employees for which unemployment insurance is carried
• Estimated number of days out of operation
• Percent of uninsured loss
Prepare and Submit a Disaster Summary Outline
The DSO is an initial estimate of the extent of damages based on the Rapid
Damage Assessment (RDA) and data collected with the pSTAT and iSTAT. It
provides the County and State a snapshot of damages and uninsured losses within
the City of Baytown. The DSO is used as a basis for obtaining a Presidential
Disaster Declaration.
The DSO is completed by the Emergency Management Coordinator. DSOs will
automatically be sent to the State Operations Center (SOC) through an online
webapp. See Appendix 1 for more detailed information.
Request for Assistance
Pre-Disaster Assistance
Prior to a federal disaster or major emergency declaration, state disaster response
and recovery assistance, which typically consists of equipment, personnel, and
technical assistance, may be deployed as soon as it is requested through the DDC in
Houston. In addition, FEMA may issue a pre-disaster Emergency Declaration to pre-
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deploy mutual aid resources and federal assets upon request by the State and local
governments.
Post-Disaster Assistance – Emergency Relief
During the initial stages of recovery, state agencies and volunteer groups may
assist disaster survivors with basic needs, such as temporary shelter, food, and
clothing. A local donations management program may be activated to distribute
donated goods and funds to disaster survivors and assign volunteer workers to
assist survivors and local government. See Mass Care and Human Services
Annex (ESF 6) and the Volunteer and Donations Management Support
Annex, regarding these programs.
Post-Disaster – Disaster Assistance
State and federal disaster assistance must be requested in a letter to the Governor,
which must be accompanied by a Disaster Summary Outline (DSO) reporting the
results of the initial damage assessment and the local disaster declaration. Based on
the information contained in the DSO and other information, the Governor may issue
a state disaster declaration for the affected area and may request that the President
issue a federal disaster declaration.
Requests for assistance should be forwarded to TDEM immediately prior to or after
the disaster to allow state officials adequate time to prepare the necessary
documentation required for a declaration.
If the Mayor determines that a disaster is of such severity as to be beyond the local
capability to recover and that state or federal assistance is needed for long term
recovery, he/she should:
• Prepare a letter requesting disaster assistance and complete the Request for
Public Assistance (RPA) Form.
• Attach a completed DSO and local disaster declaration. See Legal Support
Annex regarding the preparation of disaster declarations.
• Forward the letter and its attachments to the County Judge.
The County Judge should:
• Prepare a letter to the Governor requesting assistance and attach:
• A DSO for incorporated areas of the county, if such areas suffered damage.
• A consolidated DSO reflecting data from all cities and unincorporated areas
that suffered damage.
• A disaster declaration for the county if unincorporated areas suffered damage.
See the Legal Support Annex, for guidance on preparing a disaster
declaration.
• All letters from mayors with their attached DSOs and disaster declarations.
• Forward the foregoing to the State Operations Center.
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TDEM will review the information submitted, coordinate with the Governor’s Office
regarding the request, and maintain contact with the Mayor as the request is
processed.
If local damages appear to exceed the state and local capability to recover, TDEM will
contact the FEMA regional office and arrange for federal, state, and local personnel
to conduct a preliminary damage assessment.
If the results of that assessment confirm that the severity of the disaster is beyond
state and local capabilities and federal assistance appears warranted, the Governor
will forward a request for assistance to the President through FEMA.
Conduct a Preliminary Damage Assessment
A preliminary damage assessment (PDA) is required to support our request for
state and federal assistance. This assessment will be conducted as soon as
possible, often while some emergency response activities are still underway. Local
damage assessment teams will carry out the initial assessment under the direction
of the Operations Section Chief.
After the preliminary damage assessment has been completed and the DSO
submitted, an extensive, detailed damage assessment (DDA) is the basis of most
recovery programs at the state and federal levels. The City of Baytown is
responsible for compiling the necessary information regarding the loss of life,
injuries, and property damage. Appraised value information should be obtained
from the Harris County Appraisal District (HCAD) and Chambers County Appraisal
District (CCAD).
Coordinate Disaster Assistance Programs
Presidential Disaster Declaration
When a federal disaster declaration is issued, federal recovery programs are initiated,
state and federal recovery staffs are deployed and recovery facilities are established.
A Joint Field Office (JFO) staffed by state and federal personnel will normally be
established in the vicinity of the disaster area to administer recovery programs. One
or more DRCs staffed by state and federal agency personnel may be established to
assist disaster survivors in obtaining assistance; mobile DRCs may also be employed.
Individual Assistance (IA)
FEMA’s Individuals and Households Program (IHP) provides financial and direct
services to eligible individuals and households affected by a disaster, who have
uninsured or underinsured necessary expenses and serious needs. IHP includes
temporary housing, repair or replacement of owner-occupied homes, funds for
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disaster-caused expenses and serious needs, and limited hazard mitigation
assistance. The FEMA Individual Assistance (IA) is available to the public via phone
or online.
Federal, state, and local personnel may conduct follow-up damage assessments to
secure additional Individual Assistance (IA) funding to support unmet needs.
Individual assistance activities for residents and businesses may continue for months
requiring local support at Disaster Recovery Centers (DRCs) or Multi-Agency
Resource Centers (MARCs).
Public Assistance (PA)
FEMA’s Public Assistance (PA) Program provides assistance for governments and
private non-profits after a disaster. Eligible Types of Work include Emergency Work:
Debris Removal and Emergency Protective Measures and Permanent Work: Roads
and bridges, water control facilities, public buildings, public utilities, and parks and
recreational facilities.
As reconstructing infrastructure may require demolition and site cleanup, design and
engineering work, the letting of bids, and a lengthy construction period, public
assistance programs typically continue over a period of years.
The FEMA public assistance (PA) program is provided on a cost share basis. The
federal government picks up a large percentage of the eligible costs, usually 75%,
but the City must cover the remainder. This can be waived at the discretion of the
President. The financial reporting requirements are extensive, detailed, and critical
for reimbursement. Hence, it is particularly important to maintain complete and
accurate records of all preparation, response and recovery expenses per the Disaster
Finance and Cost Recovery Appendix.
SBA Disaster Loans
If the emergency situation does not meet the criteria for a Presidential disaster
declaration, assistance in the form of loans may be available from the SBA. Residents
and businesses will submit their own applications for SBA assistance.
Agricultural Disaster Loans
The Secretary of Agriculture is authorized to make agricultural disaster declarations
for weather-related crop losses. When such declarations are made, farmers and
ranchers become eligible for an emergency loan program. Residents and businesses
in the agriculture sector will submit their own applications for USDA assistance.
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Community Development Block Grant (CDBG) Disaster Recovery (DR) or
Mitigation (MIT).
The U.S. Housing and Urban Development Department (HUD) provides flexible grants
to help cities, counties, and states to recover from Presidentially declared disasters,
especially in low-income areas, subject to the availability of supplemental
appropriations. In response to Presidentially declared disasters, Congress may
appropriate additional funding for the Community Development Block Grant (CDBG)
Program as Disaster Recovery (DR) or Mitigation (MIT) grants to rebuild the affected
areas and provide crucial seed money to start the recovery process.
The Baytown Planning and Development Services Department (PDS) will coordinate
with County, Council of Governments, or State administering the CDBG-DR or CDBG-
MIT funding opportunities and coordinate application submissions for housing and
infrastructure projects.
Federal Highway Administration (FHWA) Emergency Relief Program
The FHWA Emergency Relief Program provides funding for the repair or
reconstruction of federal-aid highways and roads, which have suffered serious
damage as a result of (1) natural disasters or (2) catastrophic failures from an
external cause. Damages to highways or roads must be severe, occur over a wide-
areas, and result in unusually high expenses to the jurisdiction. Applicability of ER to
a catastrophic failure due to an external cause is based on the criteria that the failure
was not the result of an inherent flaw in the facility but was sudden, caused a
disastrous impact on transportation services, and resulted in unusually high expenses
to the jurisdiction.
The Baytown PWE Department will coordinate with the Texas Department of
Transportation (TXDOT) and FHWA to seek funding through this program.
Other State or federal Programs
Limited assistance may be available through other state or federal agencies: USACE,
U.S. Economic Development Administration, and other state/federal agencies.
Support Local Recovery Centers and MARCs
Disaster Recovery Centers (DRCs)
The City of Baytown will work with Harris/Chambers County and the State of Texas
to locate and designate facilities/sites as Disaster Recovery Centers in the Baytown
area. DRCs are usually operated and managed by TDEM and FEMA. DRCs offer in-
person support to individuals and businesses located in declared areas. DRCs
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typically consist of FEMA, SBA, USDA personnel available to assist disaster
survivors in applying for federal disaster assistance.
Multi-Agency Resource Centers (MARCs)
In large-scale catastrophic incidents, FEMA and TDEM may not be able to
adequately staff or operate enough DRCs to meet the demand for services. In such
circumstances, the City of Baytown will coordinate with local recovery partners and
VOADs to host a Multi-Agency Resource Center (MARC) in the Baytown community.
A MARC is a single, “one stop shop” location where public and private organizations
come together to aid those affected by disaster. MARCs are collaborative operations
that consist of municipal departments, county/state agencies, federal agencies,
VOADs, and other NGOs that provide disaster recovery services.
Strategy 4 – Implement Intermediate Recovery Programs
and Services
Implement Public Infrastructure Restoration
The Baytown Public Works and Engineering Department will continue to implement
emergency repairs, but shift focus to restoration and permanent repairs that
incorporate mitigation and resiliency into improvements to protect critical
infrastructure and benefit the community. This includes eligible work under the
FEMA Public Assistance (PA) Program in Categories C-G, funding that supports
infrastructure repairs via the CDBG-DR or Mitigation grants, and/or the FHWA
Emergency Relief Program.
Evaluate Community Needs
The needs of residents may shift from basic needs (e.g., food, water, shelter,
clothing) to interim and long-term needs (e.g., behavioral health counseling,
funding and materials for repair/rebuild, housing). The Baytown Planning and
Development Department (PDS) will coordinate with the Long-Term Recovery
Group (LTRG), Baytown Area and Chambers County – Disaster Recovery (BACC-
DR) to evaluate unmet needs in the Baytown community. This can be achieved by
canvassing, attending public meetings, and assessing needs at local recovery
centers to determine and/or reprioritize recovery operations.
Resumption of Essential Government Functions and Community
Services
The City Manager will determine when non-essential government services may
resume normal operations post-disaster. The City of Baytown Continuity of
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Government Plan outlines the critical functions and core services of the city as a
whole and how to sustain and resume normal operations of critical city services.
Essential Functions and critical core- services of each department are further
outlined in each Department Continuity of Operations Plans.
As basic recovery needs of the community and local economy are being met,
community services (e.g., senior centers, meal delivery programs, day programs
for children, and other support programs) are reestablished for operations. The
Baytown EOC will coordinate with community service partners to determine and
plan for when and how community services should be restored.
Restoration of Local Business and Industry
Reestablishing the business and industrial sector during the intermediate recovery
phase helps meet community needs and begins to revitalize the local economy.
Businesses and industry will evaluate their ability to reopen—if they choose to and
are able to reopen.
Engage local businesses and commodity partners within the jurisdiction and region
at large to assess which resources and actions (e.g., amending regulations, code
compliance, and/or the permitting processes) are needed to expedite the reopening
of businesses. Identify challenges to this process and communicate them to elected
officials.
Develop a Post-Disaster Long-Term Recovery Plan
The post-disaster recovery planning process addresses known consequences of the
disaster and is oriented toward physical planning and urban design. The purpose is
to identify recovery projects, organizational priorities, and community recovery
goals that promote community resiliency.
A post-disaster recovery plan includes feedback from the local government, private
sector, LTRGs, CBOs, and other whole community partners that captures a
collective and mutually agreed upon notion of what the community should look like
at the end of the recovery period. The plan prioritizes recovery projects that would
achieve that vision and make the community more resilient.
Engage the whole community to understand its vision for a more resilient
community in order to manage expectations and to prioritize mitigation and
recovery projects, and coordinate with appropriate community stakeholders to
create a realistic recovery timeline.
Evaluate Interim/Permanent Housing Needs
Residents are transitioning to safe, sanitary, and secure housing during the
intermediate recovery phase. Interim and permanent housing solutions greatly
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impact a community’s (including the economic and business community) ability to
recover. The Baytown Planning and Development (PDS) Department will assess
current and future housing needs. PDS with partnering agencies will evaluate the
inventory of available affordable housing and develop interim/permanent housing
solutions as necessary. Consider if any residents may need to be permanently
relocated as part of mitigation strategies. Refer to the Mass Care and Human
Services Annex for more details on temporary housing solutions.
Demobilize Mass Care Operations
During the intermediate recovery phase, residents are transitioning into interim or
permanent housing, and critical utilities and resources are resuming operations.
Mass care operations should be demobilized as appropriate in order to boost the
economy and promote individual and community recovery. The EMC will evaluate
current and future needs for mass care operations and begin planning for and
coordinating demobilization with appropriate partners.
Support Community Repopulation
When recovery has reached a point where the community and homes are safe,
sanitary, and secure and there is a viable housing program (e.g., non-congregate
shelter, disaster housing), residents may begin returning home. Assess the safety
and security of the affected area and create and disseminate a repopulation
timeline to accurately inform residents of when and how they can return to their
homes. The Baytown EOC will coordinate with partners (e.g., local, state, federal,
nonprofit, media) to facilitate repopulation for residents and businesses. This may
require increased coordination and communication for the repopulation of disaster-
impacted residents who were evacuated to other cities.
Strategy 5 – Implement Long Term Recovery Programs
and Services
In the long-term recovery phase, the role of emergency management may shift from
direct coordination of recovery activities to support activities (e.g., the Emergency
Management Coordinator may participate on the United Way Baytown Area and
Chambers County Disaster Recovery (BACC-DR) Long Term Recovery Group).
However, other governmental departments may manage or coordinate recovery
activities appropriate to their function (e.g., the Planning and Development Services
Department may coordinate permanent housing solutions, the Finance Department
coordinating the disaster finance and cost recovery process). While the incident
response role may become reduced, the EMC and/or the recovery manager should
continue to advocate for long-term recovery strategies, such as the following:
Ensuring that the Long-Term Recovery Group (LTRG), United Way BACC-DR,
remains active and continues to champion restoring, maintaining, and
enhancing the quality of life and community resiliency.
Evaluating community needs and coordinating with community development
partners to ensure community resilience is the focus of the post-disaster
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recovery planning efforts while integrating with other hazard mitigation and
community plans. This includes initiatives such as improving infrastructure in
advance of future disasters.
Ensuring that the post-disaster recovery plan is referenced and maintained
throughout the long-term recovery process, if applicable.
Identifying funding sources to implement and support long-term recovery
initiatives (e.g., Community Development Block Grant–Disaster Recovery
(CDBG-DR), mitigation grant, bonds, philanthropic funds).
Monitoring the status of FEMA PA projects within the jurisdiction as
applicable.
Coordinating and communicating public information with appropriate partners
in order to inform the public and other stakeholders of long-term recovery
operations, successes in recovery, unmet recovery needs, and other critical
information.
Continuing messaging about recovery activities, preparedness for future
disasters, as well as reinforcing expectations for continued recovery efforts.
Strategy 6 – Implement Actions by Phases of Emergency
Management
Mitigation
• Develop and enforce adequate building codes.
• Develop and enforce adequate stormwater and flood plain management codes.
• Develop and enforce adequate land use regulations.
• Develop a community hazard identification and risk assessment (HIRA) /
consequence analysis.
• Participate in the regional Threat and Hazard Identification Risk Assessment
(THIRA).
• Develop a community multi-hazard mitigation action plan.
• Develop potential mitigation measure to address the hazards identified in the
analysis.
• Develop preliminary hazard mitigation projects and shelve them. Preliminary
plans can be swiftly put into play when grant opportunities arise.
Preparedness
• Assess disaster risk to government facilities from likely hazards and take
measures to reduce the vulnerability of facilities.
• Identify damage assessment team members and train personnel.
• Maintain pre-disaster maps, photos, and other documents for damage
assessment purposes.
• Identify critical facilities requiring priority repairs if damaged.
• Ensure that key local officials are familiar with jurisdiction’s insurance coverage.
• Conduct public education on disaster preparedness.
• Conduct exercises.
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Response
• Gather damage reports.
• Compile damage assessment reports.
• Complete DSO.
• Keep complete records of all expenses.
Recovery
• Identify unsafe structures and recommend condemnation.
• Monitor restoration activities.
• Review building codes, floodplain regulations and land use regulations for
possible improvements.
• Work with businesses and industry to assist them in development of economic
recovery strategies.
• Communicate effectively with disaster survivors.
• Activate Recovery Support Functions (RSFs) and implement short, intermediate,
and long-term recovery strategies.
• Engage and Participate with the community’s Long-Term Recovery Group, the
Baytown Area and Chambers County Disaster Recovery (BACC-DR).
Organization and Assignment of Responsibilities
Organization
The city organization for disaster recovery includes the general emergency
structure described in the Basic Plan by utilizing the Incident Command System
(ICS) and National Incident Management System (NIMS) to manage recovery
operations and the additional recovery positions described in this annex. The City of
Baytown will utilize the Recovery Support Function (RSF) framework to serve as
coordinating elements for areas of responsibility for recovery programs and
services.
This plan is consistent with the National Incident Management System (NIMS), the
National Disaster Recovery Framework (NDRF), and A Whole Community Approach
to Emergency Management.
The Emergency Management Coordinator shall coordinate all recovery efforts and
serves as the Public Assistance (PA) applicant agent.
The Baytown Public Works and Engineering Department shall serve as the city’s
lead agency for the Infrastructure Systems RSF and coordinate debris removal,
debris monitoring, damage assessments, and infrastructure restoration.
The Baytown Planning and Development Services Department (PDS) shall serve as
the City’s lead agency for CPCB RSF, Housing RSF, and assist with Health and
Social Service RSF. PDS shall coordinate with PWE on damage assessments for
residential and business properties, implement and enforce post-disaster building
codes, assist in temporary housing missions, manage CDBG-DR and CDBG-
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Mitigation programs, and coordinate with long-term recovery groups and
organizations.
The Baytown Human Resources Department shall coordinate all risk management
property insurance claims and assist PWE with damage assessments to public
facilities.
The Baytown Health Department shall serve as the City’s lead agency for the Health
and Social Services RSF and coordinate all environmental health issues post-
disaster. The Baytown Fire Department shall serve as the City’s co-lead agency for
the Health and Social Services RSF and coordinate all emergency medical services
post-disaster.
The Baytown Parks and Recreation Department shall serve as the City’s lead agency
for Natural and Cultural Resource (NCR) RSF and shall coordinate park and
recreational restoration and natural resource protection/remediation.
All City departments and agencies may be called on to provide staff support for
damage assessment and recovery activities.
United Way of Greater Baytown and Chambers County leads the Long-Term
Recovery Group, known as the Baytown Area and Chamber County – Disaster
Recovery Committee (BACC-DR).
Assignment of Responsibilities
Position / Agency Response Task or Action
Mayor • By state statute, the Mayor is the Emergency
Management Director responsible for the city’s
emergency management program and is
authorized to issue disaster declarations and
special authorities and emergency powers to
execute response actions.
• Establish the overarching policies that define the
local disaster recovery program, including pre-
disaster planning and post-disaster goals and
priorities.
City Manager
• Chief Executive Officer responsible for daily city
operations and executive management.
• Leads the city’s EOC Policy Group by setting
policy priorities and designating an Incident
Commander to lead incident management.
• Monitor and provide general guidance for the
operation of the local recovery program when
implemented.
• Ensure that appropriate public information
relating to recovery programs, is distributed
effectively by the PIO.
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Position / Agency Response Task or Action
• In large-scale or catastrophic disasters, may
designate a Recovery Manager to manage all
aspects of recovery.
Emergency Management
Coordinator
• Supervise local recovery operations and manage
the collection of required records, coordinating as
needed with state and federal agencies.
• Review damage assessments and assist the Mayor
in preparing documents requesting state and
federal disaster assistance if recovery from the
disaster requires assistance beyond that which
Baytown can provide.
• Submit the completed DSO to the appropriate
County EOC, DDC or as directed by TDEM.
• Work with the PIO to develop appropriate public
information relating to recovery operations and
programs available to assist the public.
• Assist state and federal teams in preparing
recovery PWs for the local area.
• Attend the following PA program meetings:
1) Applicant’s Briefing
2) Kick-off Meeting.
3) Other program meetings, as needed.
• Monitor all PA program activities and:
o Ensure deadlines are complied with or time
extensions requested in a timely manner.
o Ensure the work performed complies with
the description and intent of the PW.
o Ensure all environmental protection and
historical preservation regulations are
complied with.
o Request alternate or improved projects,
when appropriate.
o Request progress payments on large
projects, if appropriate.
o Provide quarterly reports to TDEM.
o Request final inspections and audit when
projects are completed.
o Prepare and submit Project Completion
and Certification Report (P.4) as
appropriate.
o Provide insurance information when
needed.
o Ensure costs are properly documented.
o Assist with final inspections and audits.
o Monitor contract for de-barred contractors.
• Work with TDEM, FEMA, auditors, Contractors and
City departments to effectively and completely
closeout disaster recovery projects.
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Position / Agency Response Task or Action
Baytown Public Works and
Engineering Department
• Serves as the city’s lead agency for Infrastructure
System RSF.
• Administers and coordinate the damage
assessment program and debris
removal/monitoring programs.
• Assist in the collection of damage assessments
from all departments, agencies, other
governmental entities, and private non-profit
facilities that may be eligible for disaster
assistance.
• Designates staff to serve on the Damage
Assessment Teams (DATs).
• Designates a Disaster Assessment Team (DAT)
Unit Leader to report to the EOC Operations
Section.
• Organize and coordinate training for damage
assessment teams (DATs).
• Conduct and coordination of Public Property
Damage Assessment of: roads, bridges, traffic
control devices and city facilities.
• Determine extent of damage and estimate cost of
restoration of public infrastructure.
• Determine extent of damage to government-
owned water and wastewater systems and other
utilities and estimate the cost of restoration.
• Coordinate with local public non-profit utility
providers to obtain estimates of damage to their
facilities and equipment and estimates of the cost
of restoration.
• Manages and coordinates the activities of debris
haulers and debris monitoring contractors.
Baytown Planning and
Development Services
Department
• Serves as the City’s lead agency for CPCB RSF,
Housing RSF, and assist with Health and Social
Service RSF.
• Coordinates with PWE to conduct residential and
commercial property damage assessments.
• Assist in the collection of damage assessments
from all departments, agencies, other
governmental entities, and private non-profit
facilities that may be eligible for disaster
assistance.
• Coordinates with TDEM and FEMA regarding
Individual Assistance (IA) programs and housing
missions.
• Coordinates with the GLO, HGAC, and Harris
County regarding CDBG-DR and CDBG-Mitigation
funding opportunities.
• Manages the Community Development Block
Grant – Disaster Recovery (CDBG-DR) and CDBG-
Mitigation funding programs and initiatives to
support local projects.
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Position / Agency Response Task or Action
• Coordinates with VOADs/COADs and other non-
profit partners in regard to Long Term Community
Recovery efforts.
• Coordinates permitting, inspections, and
reconstruction of housing post-disaster.
• Coordinates with local, state, and federal housing
agencies on temporary and permanent housing
recovery programs and funding opportunities.
Baytown Human Resources
Department
• coordinate all risk management property
insurance claims and assist PWE with damage
assessments to public facilities.
• Coordinate Employee Assistance Program and
assess needs of employees post-disaster for
additional support services.
Baytown Health Department • Serves as the city’s co-lead agency for the Health
and Social Services RSF and coordinates all
environmental health issues post-disaster.
Baytown Parks and Recreation
Department
• Serve as the City’s lead agency for Natural and
Cultural Resource (NCR) RSF and shall coordinate
park and recreational restoration and natural
resource protection/remediation.
• Assists in debris clearance and debris removal
operations at parks and recreation facilities and
trails.
• Responsible for assessing damages to park
buildings, facilities, and infrastructure.
Coordinates with PWE damage assessment
teams.
• Assists in Shelter and Mass Care operations in
accordance with the Mass Care and Human
Services Annex.
Baytown Finance Department • Administer fiscal aspects of the recovery program
in accordance with city policies and the Baytown
Disaster Finance and Cost Recovery
Appendix.
• Estimate dollar losses to local government due to
disaster.
• Estimate the effects of the disaster on the local
tax base and economy.
• Monitor all disaster related purchases, expenses
and encumbrances and ensure that only those
determined eligible by state and federal law or
regulation are charged to disaster reimbursement
accounts.
• Ensure that the financial results of each project
are accurate and fully disclosed.
• Monitor the source and application of all funds.
• Ensure that outlays do not exceed approved
amounts for each award.
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Position / Agency Response Task or Action
• Maintain information establishing the local cost
share.
• Ensure that all laws, regulations, and grant
requirements are complied with.
• Coordinate between the Designated Applicant
Agent(s) and the accounting staff.
Liaison Officer (LOFR) • Act as liaison with state and federal partners and
assisting agencies.
• Assist in locating a local facility for use as DRC, if
needed.
• Act as the local government representative at the
DRC, when needed.
• Act as an advocate for disaster survivors who
need assistance in dealing with state, federal, and
volunteer agencies.
Public Information Officer (PIO) • Establish, or coordinate with a Joint Information
Center (JIC), to ensure that accurate and current
information is disseminated to the public.
• Coordinate with state and federal external affairs
personnel to host community outreach meetings
to keep the public informed of disaster assistance
and recovery resources.
• Using all appropriate media and formats, ensure
that the public is made aware of all disaster
assistance programs and centers.
United Way of Greater Baytown
and Chambers County
• Establish and maintain the community’s Long-
Term Recovery Group, aka BACC-DR.
• Based upon funding, provides a Disaster Recovery
Coordinator to manage BACC-DR and recovery
programs.
• Assists in identifying unmet needs and
coordinates access to recovery resources.
• Establishes a crisis fund for major disasters to
support local disaster relief efforts.
• Assists in volunteer management and
coordination.
• Assists in donations management and resource
referrals.
• Coordinates with United Way of Greater Houston’s
2-1-1 Texas/United Way Helpline.
• Assist in muck-and-gut clean-up operations.
County Appraisal Districts • Provide estimates of value of damaged and
destroyed property to support the damage
assessment process.
Goose Creek CISD and Lee
College
• Assess and report damage to its facilities and
equipment and the estimated cost of repairs.
• Estimate the effects of the disaster on the school
district tax base.
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Position / Agency Response Task or Action
All City Departments and
Divisions
Pre-Disaster:
• Identify personnel and assign to perform damage
assessment tasks.
• Identify private sector organizations and
individual with appropriate skills and knowledge
that may be able to assist in damage assessment.
• Purchase or otherwise secure all equipment
required to perform, document, validate, record
and report addresses, images and physical
damages to structures or infrastructure as
assigned.
• Participate in periodic damage assessment
training.
• Participate in using geographic information
systems (GIS) that may be used in damage
assessment.
• Periodically review forms and procedures for
reporting damage with designated damage
assessment team members.
Disaster Mode:
• Make tentative staff assignments for damage
assessment operations.
• Review damage assessment procedures and
forms with team members.
• Prepare maps and take photos and videos to
document damage.
Post-Disaster:
• Identify and prioritize areas to survey.
• Refresh damage assessment team members on
assessment procedures.
• Deploy damage assessment teams.
• Complete damage survey forms and forward to
the Damage Assessment Team Unit Leader.
• Catalog and maintain copies of maps, photos, and
videotapes documenting damage for further
reference.
• Provide technical assistance for preparation of
recovery project plans.
• Maintain disaster-related records.
All City Departments and
Divisions
Pre-Disaster:
• Identify personnel and assign to perform damage
assessment tasks.
• Identify private sector organizations and
individual with appropriate skills and knowledge
that may be able to assist in damage assessment.
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Position / Agency Response Task or Action
• Purchase or otherwise secure all equipment
required to perform, document, validate, record
and report addresses, images and physical
damages to structures or infrastructure as
assigned.
• Participate in periodic damage assessment
training.
• Participate in using geographic information
systems (GIS) that may be used in damage
assessment.
• Periodically review forms and procedures for
reporting damage with designated damage
assessment team members.
Disaster Mode:
• Make tentative staff assignments for damage
assessment operations.
• Review damage assessment procedures and
forms with team members.
• Prepare maps and take photos and videos to
document damage.
Post-Disaster:
• Identify and prioritize areas to survey.
• Refresh damage assessment team members on
assessment procedures.
• Deploy damage assessment teams.
• Complete damage survey forms and forward to
the Damage Assessment Team Unit Leader.
• Catalog and maintain copies of maps, photos, and
videotapes documenting damage for further
reference.
• Provide technical assistance for preparation of
recovery project plans.
• Maintain disaster-related records.
Direction, Control, and Coordination
General
This support annex will utilize the Recovery Support Functions (RSFs) to implement
the activation of this plan and the EMC will activate appropriate RSFs to support
specific recovery operations as needed. The EMC will notify primary agencies
responsible for implementation of RSFs to report to the Baytown EOC or other
designated location to activate RSFs.
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The EMC will coordinate all recovery operations, unless a Recovery Manager is
appointed to assume all responsibilities.
The City Council may establish local rules and regulations for the disaster recovery
program and may approve those recovery programs and projects that require
approval by the City Council in accordance with Texas law.
The Mayor/City Manager shall provide general guidance for and oversee the operation
of the local disaster recovery program and may authorize those programs and
projects that require approval by the chief elected official or chief operating officer of
the jurisdiction. The City Manager, during large-scale or catastrophic incidents, may
designate a Recovery Manager to coordinate all disaster recovery activities.
The Emergency Management Coordinator shall direct day-to-day disaster recovery
activities with the exception, if the City Manager appoints a Recovery Manager.
Lines of Succession
The lines of succession for the Emergency Management Coordinator is listed below:
• Emergency Management Coordinator
• Deputy Emergency Management Coordinator
• Fire Chief
• Designee assigned by the City Manager or Fire Chief as approved by Mayor.
Lines of Succession are further outlined in each Department Continuity of
Operations Plans (COOP).
For lines of succession related to the Public Works and Engineering, Planning and
Development Services, Human Resources, and the Finance Department, please
refer to each department’s respective COOP.
Readiness Levels
Level 4 – Normal Conditions
• Maintain steady-state operations.
• Prepare for disaster recovery operations and maintain recovery plan.
Level 3 – Increased Readiness
• Activate EOC Strike Team and alert key staff and community organizations of
the current situation.
• Fill vacancies on damage assessment teams; conduct refresher training; check
team equipment.
• Prepare disaster declaration and consider various recovery strategies.
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• Determine if damages reach thresholds or criteria for a disaster declaration and
request disaster assistance.
• Implement short-term, intermediate, and long-term recovery strategies.
Level 2 – High Readiness
• Activate EOC and notify staff to report for duty.
• Notify key staff, County EOCs, State EOC and community organizations of the
situation.
• Brief damage assessment teams and place on standby.
• Brief senior staff on the damage assessment process and the need for detailed
record keeping of emergency response and recovery activity expenses.
• Implement short-term, intermediate, and long-term recovery strategies.
Level 1 – Maximum Readiness
• Provide situation updates to the County and State EOCs.
• Have damage assessment teams ready for deployment.
• Coordinate with Long-Term Recovery Groups.
• Implement short-term, intermediate, and long-term recovery strategies.
• Consider designation of a Recovery Manager to manage catastrophic incidents.
• Implement a Post-Disaster Recovery Plan that establishes a clear vision of a
new normal based on community needs and priorities established by city
officials.
Information Collection, Analysis, and Dissemination
Information collection, analysis and dissemination is the primary responsibility of
the Baytown Office of Emergency Management (OEM) regarding emergency
management and homeland security matters on a daily basis. However, this
function can be fulfilled by other city departments with appropriate subject matter
expertise (SMEs), such as those with responsibilities for recovery operations.
Determining the extent of the impact of the disaster on the jurisdiction will drive
recovery operations and priorities. Methods for gathering information may include
but are not limited to conducting damage assessments and canvassing the affected
areas. Immediate needs will be determined from the analysis of the information
gathered. Example sources of information include geographic information system
(GIS) data, self-reporting tools, reporting services (e.g., 3-1-1, 2-1-1), social
media, and reports from COADs/VOADs/LTRG member organizations.
Recovery personnel operating in the Baytown EOC will maintain an Incident Position
Log and provide status updates upon request to ensure situational awareness and a
common operating picture.
The Baytown EOC Standard Operating Guide (SOG) maintains a list of available
trusted and verified authoritative resources that can be used to collect and analysis
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information and data. Information flow consist of all levels of government, private-
sector, and non-profits organizations sharing information. The Liaison Officer and
EMC will coordinate with external organizations to collect and share recovery
information.
The EMC and IC will determine Critical Information Requirements (CIRs) and
Essential Elements of Information (EEIs) with a reporting deadline, which will be
outlined in the Incident Action Plan (IAP).
The Baytown IT Services Department, Public Works and Engineering Department,
and Planning and Development Department maintain employees with GIS mapping
skills that can used to analyze and display critical data and essential elements of
information (EEIs) via dashboards, maps, and storyboards to tell the recovery story
and needs of the Baytown community.
Additional details on information collection, analysis, and dissemination can be
found in the following documents: Warning and Alert Annex, Communications
Annex, Emergency Public Information Annex, and the Baytown EOC
Standard Operating Guide.
Administration, Finance, and Logistics
Administration and Finance
Disaster Finance and Cost Recovery
Accurately documenting response and recovery actions and damages is critical for
facilitating the disaster finance process. This may include the federal disaster
reimbursement process (if available) through the Federal Emergency Management
Agency (FEMA) PA Program. Follow established policies and guidance for
documenting response and recovery actions and damages, including debris removal
operations and emergency protective measures, and develop disaster summary
outlines to estimate damages and PA thresholds. This should be practiced regardless
of the type of disaster declaration the jurisdiction is eligible for. Each department or
agency will keep detailed records on disaster related expenses, in accordance with
the Disaster Finance and Cost Recovery Appendix.
Reports and Records
Damage Assessment Reports
Damage Assessment Teams (DATs) will collect data using the Damage Assessment
Reporting Tools found in Appendix 2. Once completed, these forms should be utilized
to determine priorities for beginning repairs and evaluating the need for requesting
state and federal assistance.
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Disaster Summary Outline (DSO)
Totals from the Damage Assessments and other reports will be compiled and
transferred to the DSO. A copy of the DSO is provided in Appendix 1 to this annex.
Contracts
The Baytown Finance Department should monitor all contracts relating to the
recovery process. Contracts that will be paid or reimbursed from federal funds must
meet the following criteria:
• Meet or exceed Federal and State Procurement Standards and must follow local
procurement standards if they exceed the federal and state criteria.
• Be reasonable.
• Contain right to audit and retention of records clauses.
• Contain standards of performance and monitoring provisions.
• Fall within the scope of work of each FEMA project.
• Use line items to identify each FEMA project, for multiple project contracts.
The following contract-related documents must be kept:
• Copy of contract
• Copy of PWs
• Copies of requests for bids
• Bid documents
• Bid advertisement
• List of bidders
• Contract let out
• Invoices, cancelled checks, and inspection records
Training
The individuals or agencies assigned responsibilities for Recovery Support Functions
(RSFs) shall attend disaster recovery training. A variety of disaster recovery training
courses are offered by TDEM and FEMA.
Those individuals who are assigned duties as the Damage Assessments Teams (DATs)
should attend training appropriate to their duties. Baytown OEM will offer periodic
Damage Assessment, Debris Removal, and Disaster Recovery Training to PWE, PDS,
PRD, and other city departments.
The Baytown PWE and PDS are responsible for coordinating appropriate training for
local Damage Assessments Teams (DATs) with Baytown OEM.
The EMC and Finance Department will periodically offer Disaster Finance and Cost
Recovery training to city employees.
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Release of Information
Personal information, such as marital status, income, and Social Security numbers
gathered during the damage assessment and recovery process is protected by state
and federal privacy laws. Due care must be taken by all individuals having access to
such information to protect it from inadvertent release.
General information, such as the numbers of homes damaged and their general
locations may be provided to private appraisers, insurance adjusters, etc.
Logistics
The Baytown OEM maintains recovery resources to support mass care operations
and immediate disaster post-disaster. The Baytown EOC will submit resource
requests and mutual aid requests to the County and State for additional recovery
resources. The Baytown EOC Logistics Section will support all logistics and resource
needs to implement this plan.
Baytown OEM will also utilize recovery resources from voluntary organizations and
private sector partners to support short-term, intermediate, and long-term recovery
operations. This includes resources and logistical support from the United Way Long
Term Recovery Group, also known as the Baytown Area and Chambers County
Disaster Recovery (BACC) Group.
Refer to the Logistics and Resource Management Annex (ESF 7) for more
details on logistics, resource management, and mutual aid processes and
procedures.
Plan Development and Maintenance
Development
The Emergency Management Coordinator is responsible for developing and
maintaining this annex. The EMC will coordinate with Baytown Public Works and
Engineering and the Baytown Planning and Development Services Department to
update and revise this annex. This Annex will be updated in accordance with the
Emergency Planning SOG.
Maintenance
This annex will be evaluated, reviewed annually, and updated every 5-years in
accordance with the Basic Plan and Emergency Planning Standard Operating
Guide (SOG).
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Procedures
Those individuals charged with responsibilities for managing various recovery
activities are also responsible for developing standard operating procedures for those
activities.
Training and Exercises
The training and exercises developed for this annex will be included in the city’s
Integrated Preparedness Plan (IPP).
Training
The Baytown OEM will maintain a NIMS Training Policy for all city employees
assigned to the Baytown Emergency Operations Center and offer regularly
scheduled Incident Command System (ICS)/ National Incident Management System
(NIMS) training courses to city employees.
Baytown OEM will schedule recovery-specific training courses upon request by the
Primary Agency, Support Agencies, or other interested city employees. This may
include training on recovery operations, debris management, damage assessments,
transition to recovery, long-term recovery, and other topics related to post-disaster
operations.
Exercises
An exercise may be conducted to test the Recovery Support Annex and train
personnel on the use of this document. The exercise will include primary and
support agencies assigned to this annex and city employees assigned to the
Baytown Emergency Operations Center (EOC). After the exercise is completed the
City shall record the following information:
• List of participants;
• Lessons learned via an After-Action Report (AAR); and
• Recommendations or changes to this annex via an Improvement Plan (IP).
• Recommendations will be included in the city’s Corrective Action Tracker.
The plan may be revised based on the exercise recommendations or after a real
incident involving recovery operations.
References
• TDEM, Texas Long-Term Recovery Guide, April 2015.
• TDEM, Response and Recovery Guide, May 2020.
• FEMA, National Disaster Recovery Framework, June 2016.
• FEMA, Public Assistance Program and Policy Guide, Version 4, June, 2020.
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• FEMA, Debris Monitoring Guide, March 2021.
• FEMA, Damage Assessment Operations Manual, April 2016.
• FEMA, Individual Assistance Program and Policy Guide, Version 1.1, May, 2021.
• FEMA, Pre-Disaster Recovery Guide for Local Governments, February 2017.
Appendices and Attachments
• Appendix 1 – Disaster Summary Outline
• Appendix 2 – Damage Assessment Reporting Tools
• Appendix 3 – Long-Term Recovery Groups
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Appendix 1 – Disaster Summary Outline (DSO)
The Disaster Summary Outline (DSO) is an electronic form or web app that
is used by the City of Baytown to submit initial damage estimates on losses
from infrastructure, public facilities, residential property, and commercial
property. The EMC is responsible for completing the DSO, which is
automatically sent to TDEM upon submission. The DSO Web App can be
accessed here: https://dso.soc.texas.gov/. A paper copy of the DSO is
maintained on file as a backup.
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Residential Loss Guidelines
Category Description
Affected
Residences with minimal damage to the exterior and/or contents of the home.
Flood example: Water line in the crawl space or is below six inches in a non-occupied
basement.
Non-Flood examples: Partial missing shingles or siding, cosmetic damage such as paint
discoloration, broken screens, gutter damage and debris, damage to an attached structure,
landscaping, retaining walls, or downed tree that do not affect access to the residence.
Minor
Encompasses a wide range of damage that does not affect the structural integrity of the
residence.
Flood examples: Water line up to 18 inches in an occupied or required room or six inches
and above in an unoccupied basement, damage to mechanical components (i.e. furnace,
boiler, water heater, HVAC, etc.). For mobile homes, the water line is below the floor
system and the skirting or HVAC is impacted.
Non-Flood examples: Nonstructural damage to roof components over essential living
space, interior wall components, multiple small vertical cracks in the foundation, damage
or disaster related contamination to a private well or septic system.
Major
Sustained significant structural damage and requires extensive repairs.
Flood examples: Water line above 18 inches in an occupied or required room, a water mark
above the electrical outlet, or a watermark on the first floor of a residence with a
basement. For mobile homes, the water has come into contact with the floor system or it
has been displaced from the foundation, block or piers and other structural components
have been damaged.
Non-Flood examples: Failure or partial failure to structural elements of the roof over
required rooms, structural elements of the walls, or foundation (i.e. rafters, ceiling joints,
framing, sheathing, horizontal cracks of more than two inches of foundation, shifting of the
residence on the foundation of more than six inches).
Destroyed
Residence is a total loss, or damaged to such an extent that repair is not feasible.
Flood examples: Complete failure of two or more major structural components (e.g.,
collapse of basement walls, foundation, walls, or roof).
Non-flood examples: Only foundation remains, requires immediate demolition or
removal because of disaster-related damage or confirmed imminent damage (e.g.,
impending landslides or sinkholes).
Estimating Insurance
The following are general guidelines to estimating insurance coverage:
1. Renters are less likely to have insurance
2. Low income residents are less likely to have insurance
3. Homeowners who are still paying off their mortgage normally have the appropriate type of
insurance
4. Residents who are flooded and reside in an area that does not participate in the NFIP or in an area
that has been sanctioned for NFIP code enforcement violations will not have flood insurance.
5. Residents who are flooded but whose property is not located in the Special Flood Hazard Area
(SFHA) will probably not have flood insurance”.
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Appendix 2 – Damage Assessment Reporting Tools
The State of Texas utilizes two electronic Damage Assessment Tools to
collect and report damages: 1) Public Assistance State of Texas Assessment
Tool (pSTAT) and 2) Individual Assistance State of Texas Assessment Tool
(iSTAT).
Public Assistance State of Texas Assessment Tool (pSTAT)
The pSTAT is used by the City’s Damage Assessment Teams (DATs) during
the Rapid Damage Assessment (RDA) process to identify, collect, and report
damages to public infrastructure and public facilities. The pSTAT is an
ArcGIS Survey123 web app that collects location of damages using GPS,
uploads photographs of damages, and provides drop-down menus to
categorize damages and estimate losses. The pSTAT Survey can be accessed
here: https://tdem.texas.gov/pstat/
Individual Assistance State of Texas Assessment Tool (iSTAT)
The iSTAT is used by both residents and the City’s Damage Assessment
Teams (DATs) during the Rapid Damage Assessment (RDA) process to
identify, collect, and report damages to private property, such as residential
and commercial sites. The iSTAT is an ArcGIS Survey123 web app that
collects location of damages using GPS, uploads photographs of damages,
and provides drop-down menus to categorize damages and estimate losses.
The iSTAT Survey can be accessed here: https://damage.tdem.texas.gov/
The Baytown Public Works and Engineering Department and Planning and
Development Service Department are responsible for managing Damage
Assessment Teams (DATs) and completing Damage Assessment for
residential and commercial properties. Facilities Maintenance and Parks and
Recreation Department are responsible for Damage Assessments at city
facilities and parks facilities respectively.
Baytown OEM will coordinate with TDEM to deploy the iSTAT and pSTAT
online damage assessment tools. The City of Baytown will utilize in-house
developed Survey123 and ArcGIS Damage Assessment Tools that are readily
accessible and managed by the City of Baytown.
The Baytown Public Works and Engineering Department developed the
Substantial Damage Estimator (SDE) Residential Form in ArcGIS /
Survey123 that has been adapted to incorporate both FEMA Substantial
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Damage Estimation Tools for NFIP Compliance and FEMA Individual
Assistance (IA) Damage Assessment Criteria for rapid damage assessments.
SDE Property Damage Form ArcGIS Link: https://baytown-
tx.maps.arcgis.com/home/item.html?id=6d14753c9592406a916de906f3ed3
47d
SDE Property Damage Form Survey123 Link:
https://survey123.arcgis.com/share/0eb65ce99d7242ba9c6379327446ed00
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Appendix 3 – Long Term Recovery Groups
The Baytown Area and Chambers County Disaster Recovery (BACC-DR) is a
program of the United Way of Greater Baytown Area & Chambers County
(UWGBACC) that was established in 2017 in response to Hurricane Harvey.
BACC-DR serves as the Long-Term Recovery Group (LTRG) for the greater Baytown
area and Chambers County. United Way partners with the City of Baytown and
Chambers County Emergency Management to support those affected by natural
disasters. The BACC-DR mission is to assist in identifying and addressing the unmet
needs of those affected by Hurricane Beryl, Hurricane Harvey, and future disasters.
BACC-DR coordinate access to resources that provide relief, offering services
without regard to race, color, creed, gender, disability, or religious affiliation.
BACC-DR will strive to:
1. Provide coordinated management of long-term recovery to the disaster;
2. Provide additional long-term assistance to individuals affected by the disaster
who do not have adequate personal resources for unmet needs as result of
the disaster; and
3. Advocate for ongoing preparedness within the community and for
cooperation with faith-based, governmental, and community agencies active
in disaster response.
Some disaster relief services provided by BACC-DR include immediate shelter
protection (tarps), muck and gut, debris and trash clean-up, home repairs and
rebuilds, post-disaster canvassing, reconstruction, rehabilitation, and immediate
needs such as food, water, and other activities as determined by needs of the
community.
The United Way of Greater Baytown and Chambers County will manage a Crisis
Fund that is open year-round to fund and support disaster recovery. BACC-DR will
also assist in volunteer management to support disaster relief efforts using the
United Way Volunteer Connect platform. For more information visit:
https://www.unitedwaygbacc.org/bacc-dr
The City of Baytown will also work with the Harris County Long Term Recovery
Committee and United Way of Houston on long-term recovery efforts. For more
information visit: https://hcltrc.org/.
Baytown OEM will also coordinate with the Texas Gulf Coast Regional VOAD. For
more information visit: https://tgcrvoad.org/
CITY OF BAYTOWN
Mass Care and Human Services
Annex
Emergency Support Function
(ESF) 6
BAYTOWN FIRE DEPARTMENT
OFFICE OF EMERGENCY MANAGEMENT
OCTOBER 2025
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ESF 6 – 1
Approval and Implementation
City of Baytown, Texas
Mass Care and Human Services Annex (ESF) 6
This annex is hereby approved for implementation and supersedes all
previous editions.
___________________________ ___________________________
Clifford Hatch Date
Director of Parks and Recreation
David J. Alamia Jr., MPA, CEM Date
Emergency Management Coordinator
10/27/25
10/27/2025
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ESF 6 – 2
Record of Changes
CHANGE # DATE OF
CHANGE DESCRIPTION CHANGED BY
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ESF 6 – 3
Table of Contents
Approval and Implementation ........................................................................................................ 1
Record of Changes .......................................................................................................................... 2
Primary and Support Agencies ....................................................................................................... 6
Primary Agency .......................................................................................................................... 6
Support Agencies ........................................................................................................................ 6
Authority ......................................................................................................................................... 6
Purpose ............................................................................................................................................ 6
Scope ............................................................................................................................................... 6
Explanation of Terms ...................................................................................................................... 6
Acronyms .................................................................................................................................... 6
Definitions................................................................................................................................... 7
Situation and Assumptions ........................................................................................................... 11
Situation .................................................................................................................................... 11
Assumptions .............................................................................................................................. 13
Concept of Operations .................................................................................................................. 15
General ...................................................................................................................................... 15
Strategy 1 - Coordinate Mass Care and Shelter Resources ....................................................... 17
Registration ........................................................................................................................... 17
Feeding .................................................................................................................................. 17
Shelter Selection ................................................................................................................... 17
Shelter Facilities.................................................................................................................... 18
Shelter Operations ................................................................................................................. 18
Shelter Closure ...................................................................................................................... 19
Sheltering Individuals with Access and Functional Needs ................................................... 19
Strategy 2 - Coordinate Emergency Assistance Resources ...................................................... 20
Volunteer and Donation Management .................................................................................. 20
Evacuation Tracking and Registration Support .................................................................... 20
Bulk Distribution – Commodity Points of Distribution (PODs) .......................................... 20
Family Reunification ............................................................................................................ 21
Strategy 3 - Coordinate Human Services Resources ................................................................ 23
Disaster Assistance and Disaster Recovery Programs .......................................................... 23
Disaster Behavioral and Mental Health Services.................................................................. 24
Critical Incident Stress Management (CISM)....................................................................... 25
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Disaster Case Management ................................................................................................... 25
Disaster Legal Services ......................................................................................................... 25
Crime Victim Compensation ................................................................................................ 26
Other Needs and Unmet Needs ............................................................................................. 26
Employee Assistance Program ............................................................................................. 26
Strategy 4 - Coordinate Temporary Housing Resources .......................................................... 26
Temporary Housing Assistance ............................................................................................ 26
Homeless Resources ............................................................................................................. 27
Actions by Phases of Emergency Management ........................................................................ 27
Organization and Assignment of Responsibilities ........................................................................ 29
Organization .............................................................................................................................. 29
Assignment of Responsibilities................................................................................................. 30
Direction, Control, and Coordination ........................................................................................... 34
General .................................................................................................................................. 34
Lines of Succession............................................................................................................... 35
Readiness Levels ........................................................................................................................... 35
Level 4 – Normal Conditions ................................................................................................ 35
Level 3 – Increased Readiness .............................................................................................. 35
Level 2 – High Readiness ..................................................................................................... 36
Level 1 – Maximum Readiness............................................................................................. 36
Information Collection, Analysis, and Dissemination .................................................................. 37
Administration, Finance, and Logistics ........................................................................................ 38
Administration and Finance ...................................................................................................... 38
Records and Reports ............................................................................................................. 38
Documentation of Costs ........................................................................................................ 38
Logistics .................................................................................................................................... 38
Plan Development and Maintenance ............................................................................................ 39
Training and Exercises .............................................................................................................. 39
Training ................................................................................................................................. 39
Exercises ............................................................................................................................... 39
References ..................................................................................................................................... 40
Appendices and Attachments ........................................................................................................ 40
Appendix 1 – Potential Shelter Facilities.................................................................................. 41
Appendix 2 – Shelter and Mass Care Documents .................................................................... 44
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Appendix 3 – Volunteer Organizations Active in Disasters (VOADs) .................................... 45
Appendix 4 – Disaster Assistance Resources ........................................................................... 46
Appendix 5 – Shelter and Mass Care Staffing .......................................................................... 47
Appendix 6 – Pandemic Shelter Operations ............................................................................. 49
Appendix 7– Cooling and Warming Centers SOGs ................................................................. 55
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ESF 6 – 6
Primary and Support Agencies
Primary Agency
• Baytown Fire Department, Office of Emergency Management (OEM)
• Baytown Parks and Recreation Department (PRD)
• Baytown Planning and Development Services (PDS)
Support Agencies
• Baytown Department of Human Resources
• United Way of Greater Baytown and Chambers County
• American Red Cross
• The Salvation Army
• Volunteer Organizations Active in Disasters (VOADs).
Authority
• See Section 1 of the Basic Plan for general authorities.
• City of Baytown, Code of Ordinances, Chapter 22 – Emergency Management
• Texas Statute 252 - Purchasing and Contracting Authority of Municipalities
Purpose
The purpose of the Mass Care and Human Services Annex – Emergency
Support Function (ESF) 6 is to outline organizational arrangements, operational
concepts, responsibilities, and procedures to protect residents and others from the
effects of an emergency situation by providing mass care and human services. This
Emergency Support Function (ESF) can be divided into four main objectives: Mass
Care and Sheltering, Emergency Assistance, Temporary Housing, and Human
Services.
Scope
This Annex was developed to provide mass care and human services within the City
of Baytown by addressing the immediate needs of those affected by disasters.
Activities of ESF #6 include supporting the provision of life-sustaining and human
services to the affected community, including feeding, sheltering, interim housing,
reunification assistance, and emergency supply distribution. This annex applies to
city departments, non-profits, and volunteer organizations active in disaster as
outlined in this document.
Explanation of Terms
Acronyms
AAR-IP After-Action Report / Improvement Plan
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ARC American Red Cross
CCP Crisis Counseling Program
CERT Community Emergency Response Team
CIR Critical Information Requirement
CISM Critical Incident Stress Management
CVC Crime Victim’s Compensation
DDC Disaster District Committee
DSHS Texas Department of State Health Services
DRC Disaster Recovery Center
DWI Disaster Welfare Inquiry
EAP City of Baytown’s Employee Assistance Program
EEI Essential Elements of Information
EMC Emergency Management Coordinator
EOC Emergency Operations Center
FBO Faith-Based Organizations
FEMA Federal Emergency Management Agency
FNSS Functional and Access Needs Support Services
HHSC Texas Health and Human Services Commission
ICS Incident Command System
NIMS National Incident Management System
NRF National Response Framework
OAG Office of the Attorney General
OEM Baytown Office of Emergency Management
PIO Public Information Officer
POD Points of Distribution (commodities)
SMT Shelter Management Team
SOGs Standard Operating Guides
TDEM Texas Division of Emergency Management
SA The Salvation Army
SCC State Crisis Consortium
SOG Standard Operating Guide
USDA United States Department of Agriculture
VOAD Voluntary Organizations Active in Disasters
Definitions
Collection Point: A designated pick-up point or drop-off location used as a safe
holding area to transfer disaster survivors out of a hazard zone to an Embarkation
HUB or shelter. During rescue operations in major floods, the term “Lily Pad” may be
used, which are areas located on high ground used as drop-off points for disaster
survivors to await transfer to a shelter.
Commodity Point of Distribution (POD): An area selected and operated by the
City as temporary staging for distribution of basic commodities to residents following
a disaster.
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PODs are continuous drive through sites at which the public does not get out of their
vehicles; rather they drive through the site where volunteers load resources into the
trunks of cars and the public can obtain information.
Congregate Shelter: Generally provided in large open settings that provide little to
no privacy in facilities that normally serve other purposes such as schools, churches,
community centers, and armories.
Crime Victim’s Compensation: A state program that provides monetary assistance
to survivors of crime. Assistance may include paying for hospital care, traditional
counseling, burial, and/or other appropriate expenses that are incurred as a result of
a crime. The Crime Victim’s Compensation Division of the Office of the Attorney
General (OAG) coordinates this program.
Crisis Counseling: Crisis counseling is the application of individual procedures that
are designed to improve mental and emotional crises and resulting psychological and
behavioral conditions caused by a major disaster or its aftermath. The purpose is to
lessen the adverse mental health effects of disasters and trauma for the residents
affected and first responders, whether those incidents result from natural hazards or
are man-made. A short-term therapeutic intervention process that utilizes
established mental health techniques to lessen adverse emotional conditions that can
be caused by sudden and/or prolonged stress. Crisis counseling is normally set up
for survivors and secondary responders who have been involved in an emergency
situation, while Critical Incident Stress Management (CISM) is designed for first
responders.
Crisis Counseling Program: Texans Recovering Together is the state CCP program.
It is administered within the Disaster Behavioral Health Services branch of HHS and
provides short-term stress management and crisis counseling to individuals and
groups having psychological reactions to large-scale, presidentially declared
disasters. The CCP seeks to empower survivors by educating them about disaster
reactions, teaching them coping skills, assessing them for individual needs and linking
them to appropriate community resources.
Critical Incident Stress Management (CISM): CISM is a comprehensive,
integrated, and multi-component crisis intervention system for the reduction and
control of the harmful effects of stress. This process is primarily intended and usually
designed for first responders such as law enforcement, fire, and EMS personnel.
Peers with guidance and oversight by mental health professionals normally conduct
CISM. Department of State Health Services (DSHS) is responsible for coordination
of the Texas CISM Network. Baytown Fire Department is responsible for managing
the City’s CISM Program and Team.
Disaster Behavioral Health Services: Disaster behavioral health addresses the
psychological, emotional, cognitive, developmental and social impacts that disasters,
emergencies or incidents have on survivors and first responders as they respond and
recover. The goals of disaster behavioral health are to relieve stress, reinforce healthy
coping strategies, mitigate future behavioral health problems, and promote individual
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and community resilience. Disaster behavioral health services include crisis
counseling, CISM, and victim’s services. This includes assessing short and long-term
mental health needs, assessing the need for additional mental health services,
tracking on-going support needs, providing disaster mental health training programs,
and identifying disaster worker stress issues and needs. The majority of disaster
behavioral health activities are accomplished by state, local, tribal and territorial
entities, and Voluntary Organizations Active in Disasters.
Disaster Recovery Center (DRC): A location established in a centralized area
within or near the disaster area at which individuals, families, and/or businesses
apply for disaster aid. In general, a DRC is established by FEMA and TDEM in
coordination with the County and City after a major disaster declaration by the
President. May also be referred to as a Disaster Assistance Center (DAC) or a
Recovery Assistance Center (RAC).
Emergency Assistance: Assistance required by individuals, families, and their
communities to ensure that immediate needs beyond the scope of the traditional
“mass care” services provided at the local level are addressed. These services
include: evacuation tracking and registration support; reunification of families;
emergency animal services; coordination of donated goods and services; and
coordination of voluntary agency assistance.
Emergency Temporary Shelter: This type of shelter serves the general population
in an existing facility, such as a school, community center, convention center, or
church that the Authority Having Jurisdiction (AHJ) has temporarily converted for use
as a shelter for disaster survivors. This type of Shelter provides for the immediate
needs of disaster survivors, typically for less than 72 hours. It provides basic life-
sustaining services until the threat has passed, or until shelter residents transfer or
transition to a Short-Term Shelter. This type of shelter is also known as a NIMS typed
Evacuation Shelter.
Family Assistance Center: Provides avenue for authorities to provide information
to victims, coordinate access to support services, and facilitate the collection of
information from families that is necessary for victim identification.
Feeding: The provision of food, snacks and hydration to the affected population and
emergency workers, either from fixed sites or through mobile routes.
General Population Shelter: These are facilities which shelter everyone in the
community, including people with disabilities and others with access and functional
needs (e.g. children and adults) requiring supportive services to maintain
independence and utilize the shelter and its programs and services.
Housing: Includes housing options such as rental assistance, repair, loan assistance,
replacement, factory-built housing, semi-permanent and permanent construction,
referrals, identification and provision of accessible housing, and access to other
sources of housing assistance.
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Human Services: provisions to support disaster survivors with disaster assistance,
disaster loans, social services, mental health resources, disaster case management,
crisis counseling services, disaster unemployment, disaster legal services, and other
unmet needs.
Mass Care: Providing assistance to those who have been displaced from their homes
and others affected by a hazardous situation or the threat of such a situation. Mass
care for these individuals includes providing shelter, food, emergency first aid, bulk
distribution of emergency items, and other essential life support services.
Medical Shelter: Facilities that provide a defined level of acute medical care or
support typically found in a hospital or acute care facility coordinated by Annex H –
Health and Medical.
Welfare Inquiries: Welfare inquiries are requests from relatives, friends,
employers, or others for information on the status of persons in an area affected by
an emergency who cannot be located because they have evacuated, become
separated from their families, or cannot be contacted by normal means of
communications. For emergency situations that extend beyond several days, the
Baytown Police Department will take the lead in fulfilling those welfare inquiries and
to coordinate their work and information with the American Red Cross.
General Welfare Inquiry: A general welfare inquiry is a service provided to
someone who is concerned about the welfare of a loved one. The Safe and Well
website is always used in these cases in addition to providing recommendations.
Emergency Welfare Inquiry: An emergency welfare inquiry is a service provided
for an individual that has a medical, mental health, functional or access need or
disability that could impact an individual’s ability to be safe during a disaster. An
emergency welfare inquiry results in a comprehensive search for that individual and
follow-up with the seeker.
Shelter Management Team: The Shelter Management Team coordinates and
manages resources in a congregate care facility, to provide a safe, accessible, and
secure shelter environment for disaster survivors. The SMT serves as a core
management team for shelter operations, including resident and facility support
services
Short-Term Shelter: This type of shelter is in an existing facility (or facilities), such
as a school, community center, convention center, or church temporarily converted
to provide safe, accessible, and secure short- term housing for disaster survivors.
This type of shelter provides for the short-term needs of disaster survivors, typically
for up to two weeks. This type of shelter provides a safe and accessible location for
life-sustaining support.
Individuals with Access and Functional Needs: Persons who may have additional
needs before, during and after an incident in functional areas, including but not
limited to: maintaining independence, communication, transportation, supervision,
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and medical care. Individuals in need of additional response assistance may include
those who have disabilities; live in institutional settings; are older; are children; are
from diverse cultures; have limited English proficiency or are non-English speaking;
or are transportation disadvantaged.
Functional and Access Needs Support Services: Services that enable children
and adults with or without disabilities who have access and functional needs to
maintain their health, safety, and independence in a general population shelter.
Long-Term Shelter: A Long-Term Shelter is in a safe and accessible location to
provide sustained support services to disaster survivors for more than 2 weeks. The
Authority Having Jurisdiction (AHJ) establishes shelters when housing stock is not
available or is insufficient for intervals longer than two weeks and up to several
months. Long-Term Shelters are existing facilities temporarily converted by the AHJ
to provide safe, accessible, and secure housing.
Reunification Services: Services that provide mechanisms to help displaced
disaster survivors, including children, reestablish contact with family and friends.
Texas CISM: The Texas CISM Network teams are comprised of trained volunteer
mental health professionals, peers and select members of the clergy who provide
responsive supportive crisis intervention services and stress management education
to any emergency responder agency or organization in Texas. The focus of the teams
is to minimize the harmful effect of job stress and accelerate the recovery of
personnel who were traumatized in these situations. The Critical Incident Stress
Management Network teams are available within the state on a 24-hour basis.
Situation and Assumptions
Situation
Baytown Hazard Identification and Risk Assessment / Consequence Analysis
(HIRA/CA) Summary in the Basic Plan and Hazard Mitigation Plan identifies a number
of threats that could make necessary evacuation of some portions of the city.
Evacuees from other jurisdictions may also seek refuge in our area. Each of these
situations may generate a need for shelter and mass care operations in our area.
Baytown has a significant portion of its municipal boundaries within Hurricane
Evacuation Zip-Zone B and Zip-Zone C. As such, during tropical cyclone incidents
that pose a high-wind and storm surge threat, the City of Baytown will implement
evacuation as a primary protective measure and not open shelters.
Baytown is faced with a multitude of hazards and threats, such as flooding,
tornadoes, and hazardous material incidents, which may require the need to open
public shelters as a protective measure.
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Baytown has very limited capability or resources for providing shelter and mass care
to protect local residents displaced from their homes and others who evacuate into
our jurisdiction due to emergencies. Baytown’s primary response partner in sheltering
operations will be the American Red Cross. Baytown will require assistance from
Harris County and Chambers County to support shelters.
City Staff that received shelter training may be required to assist in the initial
establishment and operations of the shelter, until the American Red Cross or other
entity can transfer responsibility.
Shelter and mass care needs may range from very short-term operations for a limited
number of people where the primary objective is to provide protection from the
weather, comfortable seating, and access to rest rooms to more lengthy operations
for large number of evacuees where feeding, sleeping, and shower facilities are
desirable and a variety of assistance must be provided to evacuees. Baytown will
coordinate with the American Red Cross and local organizations to implement inter-
local agreements for Emergency Temporary Shelters and Short-Term Shelters.
However, the City of Baytown does not have the capability to support Long-Term
Shelter operations and will coordinate with Harris County and Chambers County to
support such operations.
The American Red Cross (ARC) has been chartered under federal law to provide mass
care to victims of natural disasters. Hence, the City’s efforts will be coordinated with
the ARC, which will normally operate shelter and mass care operations insofar as its
capabilities permit.
The ARC has a signed agreement with the City of Baytown to use the Community
Center at 2407 Market Street as a shelter and mass care operation.
Local governments and the ARC and other volunteer groups may also sign
agreements relating to the operation of shelter and mass care and feeding facilities
when needed; such agreements detail the responsibilities of both the volunteer group
and the local government. See Appendix 2 for copy(s) of executed agreement(s).
If ARC services are not available, other volunteer organizations and religious groups
may operate shelters that have an agreement with the City of Baytown. Some of
these organizations and groups coordinate their efforts with the ARC, while others
may operate these facilities independently and assume full responsibility for them.
In the aftermath of emergency situations, survivors may need assistance in
obtaining food, clothing, mental health services, and other essential life support
needs as well as cleaning up and making temporary repairs to their homes.
Emergency responders, survivors, and others who were affected by the emergency
may experience stress, anxiety, and other physical and psychological effects that
adversely impinge on their daily lives.
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Assumptions
• Individuals affected by a disaster may need mass care resources,
including lodging, feeding, financial assistance and emotional support
care.
• Recovery efforts are initiated concurrently with response activities.
Close coordination is required among city departments, non-
governmental organizations (NGOs), and Voluntary Organizations
Active in Disaster (VOADs).
• (TXVOAD) assisting with mass care response and recovery activities.
• Public sheltering is a local government responsibility in collaboration
with community partners; responsibilities include designating, planning,
resourcing, operating and closing of public shelters.
• Shelters may have to be opened with little notice. Until the ARC
personnel arrive, City personnel, if available, can begin the process of
setting up the shelter until they arrive.
• Volunteer organizations that normally respond to emergency situations
will assist in shelter and mass care operations.
• If additional resources are needed to conduct shelter and mass care
operations, support may be requested pursuant to inter-local
agreements and from state and federal emergency management
agencies. When requested by a local jurisdiction, the Governor may
authorize the use of military forces to support shelter and mass care
operations.
• The only City owned facility planned for shelter and mass care is the
Community Center, 2407 Market Street and will be available at all times
of need. EXCEPTION: The Community Center will NOT be available as a
hurricane ride-out shelter; it is located within the 500-year floodplain
and subject to storm surge flooding.
• Local shelter facilities and Shelter Management Teams (SMTs) in
cooperation with partner agencies will work to provide guidance for pet
owners on how or where to shelter pets. When feasible, pet shelters will
co-locate near congregate care shelters.
• When evacuation is recommended during an emergency situation, past
experience has demonstrated that approximately 60 percent of those
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for whom evacuation has been recommended will evacuate. The vast
majority of evacuees will seek refuge with friends or relatives or go to
commercial accommodations rather than a public shelter. In addition,
some people who are not at risk may spontaneously evacuate and some
of those individuals may seek public shelter.
• For hazards that are highly visible or extensively discussed in the media,
people may evacuate occur prior to an official recommendation to do so.
Hence, shelter and mass care operations may have to commence early
in an emergency situation.
• Essential public and private services will be continued during shelter and
mass care operations. However, for a major evacuation that generates
a large-scale shelter and mass care operation, normal activities at
schools, community centers, churches, and other facilities used as
shelters may have to be curtailed.
• People may arrive at a shelter with their household pets and the
household pets will need sheltering and appropriate care.
• Infrastructure problems, transportation, debris, and external factors,
may impede delivery of sheltering supplies and may require staging.
• Augmentation of mass care capabilities within the City of Baytown will
require additional resources that may take multiple days to arrive.
• Staff and volunteers are impacted by the disaster event directly or
indirectly resulting in unavailability or delayed response to help.
Depending on the duration of the sheltering support programs, this may
also be true in providing adequate staff for long-term/sustained
activations.
• Commodity Points of Distribution (PODs) may be established following
a disaster in which essential infrastructure and services such as water,
wastewater treatment, and electric generating facilities are not
functional. PODS will only be opened during a federal disaster
declaration at the direction of the Mayor/City Manager when local
grocery stores are not operating to support local commodity demands
post-disaster.
• Disaster survivors evacuated from their homes and housed in temporary
shelters, those that remain in their homes under adverse conditions,
and emergency responders may need human services support in the
aftermath of a disaster.
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• In the aftermath of an emergency situation, survivors and emergency
responders who would not normally be clients of local and state human
service agencies may require some form of human services assistance,
including food, clothing, and disaster mental health services. Abnormal
demands may be placed upon the delivery of human services, including
disaster mental health services, emergency assistance, and the care of
special needs groups. As a consequence, the clientele of both local and
state human service organizations may increase.
• During a disaster or catastrophic incident there will be populations
requiring specialized services including the following: elderly,
handicapped, Access and Functional Needs (AFN) populations, and
homeless individuals.
• In some cases, disaster mental health services may be needed during
response operations.
• State assistance will be available to supplement local human services
resources.
• The United Way of Baytown and Chambers County, American Red Cross,
The Salvation Army, and other VOADs will provide human services and
disaster assistance to disaster survivors.
Concept of Operations
General
The City of Baytown has very limited resources and facilities to support mass care,
sheltering operations, housing, and human services. The City’s primary partner for
mass care and shelter operations is the American Red Cross.
The City does not operate a social service agency and does not provide social
services on a daily basis; thus, the City is dependent upon Harris and Chambers
counties, state agencies, and federal programs to provide individual assistance and
human services during a disaster.
Baytown is responsible for developing a plan, integrating the concepts of the
National Incident Management System (NIMS), and for coordinating mass care
services to persons affected by a disaster. The requirements for services may vary
depending upon the nature, type, and level of the emergency. Baytown will work
closely with volunteer organizations and social service agencies that provide mass
care, shelter, and human services support to determine the availability of shelter
and feeding facilities, encourage facility owners to sign agreements for use of those
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facilities, and encourage facility owners to allow their personnel to participation in
shelter management training.
The City of Baytown has established close working relationships with the American
Red Cross, The Salvation Army, and other non-governmental and faith-based
organizations to provide human services and support for disaster survivors.
The Incident Commander or the Emergency Management Coordinator is expected
to determine the need for opening shelters and commencing mass care operations
based on the emergency.
The Mayor or Emergency Management Coordinator may request the opening of
shelters and recommend the closing of shelters when they are no longer required.
These actions should be coordinated with the ARC and other shelter providers. A list
of potential shelters in provided in Appendix 1. The Mayor or Emergency
Management Coordinator may further assign tasks and responsibilities to support
shelter and mass care efforts.
The American Red Cross, in cooperation with the City of Baytown and volunteer
disaster assistance organizations, will provide temporary shelter, mass care
services, and human services for people displaced from their homes.
The ARC and other private disaster assistance organizations will be called upon to:
• Open and temporary shelters for the displaced population.
• Activate or organize shelter teams and provide shelter kits.
• Register those occupying public shelters.
• Provide feeding, emergency first aid, and other basic life support needs for
those occupying temporary shelters.
• For extended shelter operations, activate a disaster welfare inquiry systems.
• Provide periodic reports on the status of shelter and mass care operations.
• Provide human services, such as disaster assistance, case management,
crisis counseling, and disaster mental health services.
The Baytown EOC coordinates with local human services organizations and
organized volunteer disaster assistance organizations to ensure basic human
services are provided in the aftermath of an emergency.
In some disasters, the federal government (FEMA) may be requested to provide
emergency housing. Disaster survivors will be encouraged to obtain housing with
family or friends or in commercial facilities. To the extent possible, local
government will assist and coordinate post-disaster housing needs of the homeless.
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Strategy 1 - Coordinate Mass Care and Shelter Resources
Mass care includes the registration of evacuees, feeding of evacuees and
emergency workers, and provision of other life support needs for shelter occupants.
Registration
The purpose of registration is to be able to respond to inquiries about the status of
evacuees, monitor health concerns, and provide a basis for post-emergency follow-
up support.
The ARC will provide for the registration of evacuees who are housed in ARC
shelters. The Emergency Management Coordinator, or Liaison Officer should
coordinate with other organizations that operate shelters to ensure that evacuees
occupying those facilities are registered and information provided to the EOC.
Feeding
Both fixed facilities and mobile units may be used for preparing and serving meals.
Fixed facilities include schools, churches, and civic buildings serving as shelters.
The ARC, Salvation Army (SA), and other disaster relief agencies may also deploy
self-contained mobile feeding units to supplement fixed feeding facilities.
The U.S. Department of Agriculture (USDA), through the Health and Human
Services Commission (HHSC), food banks, and commercial facilities provides USDA
commodities used in preparing meals or for distribution to disaster victims.
If a school is used as a congregate feeding site, the school may use USDA
commodities already on its shelves to prepare meals for mass care operations.
USDA will replace them or credit their entitlement dollars as long as school officials
provide HHSC with an itemized list of which commodities were used and daily meal
counts. In general, USDA commodities should not be used without prior approval
from HHSC. The request must come from the ARC. HHSC will arrange to have
additional USDA commodities shipped to the feeding site, if necessary, either
directly from USDA or one of the HHSC warehouses.
The City of Baytown maintains a food contract that may be utilized to provide for
food and eating supplies for disaster survivors in public shelters. The food contract
will only be implemented in anticipation of a federally declared disaster and as a
last resort measure if no other available food source is available for shelter
populations.
Shelter Selection
The ARC publishes standards for temporary shelters (ARC 4496 - Standards for
Hurricane Evacuation Shelter Selection).
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The following criteria may be useful in screening facilities to determine which merit
more detailed inspection:
• Must be designed and built to withstand at least 130mph wind speed (ASCE-
7), structurally sound and in a safe condition.
• Must not be located in an area subject to flooding or where flooding can cut
off access to the facility.
• Must not be in a hazardous materials risk area.
• Should have adequate sleeping space.
• Should have sufficient restrooms for the population to be housed.
• Should have adequate climate control systems.
• Kitchen/feeding area is desirable.
• Shower facilities are desirable if the facility will be used for more than one
day.
• Telephone service is essential.
• Adequate parking is desirable.
The Emergency Management Coordinator should coordinate with the ARC and other
volunteer organizations in identifying potential shelters and developing the shelter
list in Appendix 1 to ensure that issues of interest to local government are
considered in the shelter selection process.
Shelter Facilities
The ARC executes agreements with building owners for use of structures as shelters
and normally inspects the facilities it plans to use to determine their capacities and
the availability of various types of equipment.
The City of Baytown will coordinate with the Lee College District to utilize the
district’s facilities as an Emergency Temporary Shelter and/or Short-Term Shelter.
The Baytown Community Center at 2407 Market Street is the only City facility
currently listed as a shelter location. The Director of Parks and Recreation is
responsible to ensure that this facility is made available to the ARC for public
sheltering in an immediate fashion.
Several Baytown area churches are also available for use as shelters. The ARC and
City of Baytown works directly with those churches for access and permission to
use these facilities for disaster shelter operations.
Shelter Operations
The specific facilities that will be used for sheltering and feeding during an
emergency will depend on the needs of the situation, the status of available
facilities, the location of the hazard area, and the anticipated duration of
operations. Shelters are typically opened and closed based on need. When
occupancy of existing shelters reaches 75 to 80 percent, consideration should be
given to opening an additional facility.
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It is generally more effective in terms of resource utilization to operate a few
medium to large shelters than a large number of small facilities.
Shelters should be managed by individuals with shelter management training,
preferably individuals who work in the facility on a daily basis. The ARC and the
Emergency Management Coordinator will jointly maintain a listing of trained shelter
and mass care facility managers in the local area.
To ensure consistency in shelter activities, it is desirable that all shelters follow a
general set of operating guidelines. When the ARC opens a shelter, ARC policies
guide how the facility is staffed and operated.
Shelter managers are expected to provide periodic reports on the number of
occupants and the number of meals served. Volunteer groups operating shelters
may also be required to report this information through their organizational
channels.
The City of Baytown is responsible for coordinating the following support for shelter
operations:
• Security and, if necessary, traffic control at shelters.
• Fire inspections and fire protection at shelters.
• Transportation for food, shelter supplies, and equipment if the organization
operating the shelter cannot do so.
• Environmental health inspections.
• Transportation of shelter occupants to feeding facilities, if necessary.
• Basic emergency medical attention, if the organization operating the shelter
cannot do so.
Shelter Closure
Evacuees normally return to their homes as soon as the danger has passed.
Hence, most shelters are closed quickly and returned to normal use. However,
some evacuees may be unable to return to their homes due to damage or
destruction. It may be necessary to have one or more shelters remain open for an
extended period until those who cannot return to their residences can be relocated
to motels, rental units, mobile homes, and other types of temporary lodging. Such
extended use facilities should have access to showers and on-site feeding; it is
preferable that cots be provided.
Sheltering Individuals with Access and Functional Needs
Institutional facilities include hospitals, nursing homes, group homes, and
correctional institutions. Such facilities are responsible for the welfare and safety of
their clients, who may need specially trained staff to care for them and specialized
equipment and facilities to meet their needs. Institutions supporting individuals
with functional and access needs are required by City, state and federal regulations
to have disaster preparedness plans that provide for evacuation and relocation of
the institution’s population to comparable facilities in an emergency.
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Mass care shelters for the general population are generally staffed and equipped to
handle individuals with access and functional needs. Other individuals, particularly
medical patients and prisoners, should not be relocated to shelters used by the
general public. In the event that institutional facilities encounter difficulty in
evacuating and relocating their clients, local officials may need to assist those
facilities in arranging transportation and in locating suitable reception facilities. It
may also be necessary to assist in relocating some medical patients who are living
at home.
Public shelters can generally accommodate individuals with functional and access
needs who require minimal care and are attended by their families or other
caregivers.
Strategy 2 - Coordinate Emergency Assistance Resources
Volunteer and Donation Management
Refer to the City of Baytown’s Volunteers and Donations Management
Support Annex.
Evacuation Tracking and Registration Support
The City of Baytown will utilize the Texas Emergency Tracking Network
(ETN) to ensure accountability of all transported evacuees and their animals
during the evacuation process and to assist with locating and reuniting
evacuees with their families.
The City of Baytown maintains a cache of equipment to support ETN. For
more details refer to the city’s Evacuation Support Annex and
Embarkation HUB Plan.
Bulk Distribution – Commodity Points of Distribution (PODs)
See the City of Baytown Point of Distribution (POD) Plan regarding POD
operations within city. PODs will provide basic commodities such as food like
meals-ready-to-eat (MREs), water, and ice. The Baytown Fire Department,
Emergency Management Division will maintain a list of potential POD locations
throughout the city and update on an annual basis.
VOADs and other emergency relief organizations may also provide emergency
provisions of water supplies and food to disaster survivors.
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Family Reunification
The City of Baytown will assist partnering agencies in providing reunification
services and family assistance in accordance with the City of Baytown, Family
Reception Center (FRC) and Family Assistance Center (FAC) Standard
Operating Guide (SOG).
Reunification services will be needed in some capacity on nearly all emergencies.
Locating missing children and reuniting unaccompanied minors with their
parent/guardian is a priority of reunification operations. In small incidents,
reunification needs may be easily met by the shelter staff. In larger or catastrophic
incidents, reunification needs may exceed the resources and capability of any one
agency or organization, requiring a combination of resources provided by Federal
and State government, NGOs, and the private sector. The following reunification
resources are available to assist separated disaster survivors:
Goose Creek CISD Reunification Plan
The school district maintains a plan and program to provide reunification services to
school aged children.
American Red Cross: Safe and Well
Safe and Well is a web-based system that helps reunite friends and family displaced
by a disaster. The Safe and Well is always available and can be used by the public
for any disaster, large or small. Link: https://safeandwell.communityos.org
Facebook: Safety Check
Safety Check is a crisis response tool created by Facebook where Facebook users
can mark themselves as “Safe” and help them connect with family and friends. This
resource can only be used for Facebook account users.
https://www.facebook.com/about/crisisresponse/
Google Person Finder (Google)
This system, which can be integrated into first responder Websites, can be used after
natural or humanitarian disasters to report or locate missing people. First responder
agencies can also upload or download data from the site.
https://google.org/personfinder
National Center for Missing and Exploited Children (NCMEC)
NCMEC serves as a resource center and clearinghouse on topics related to missing
and sexually exploited children. The Center supports law enforcement, the public,
and private organizations. www.missingkids.com.
National Emergency Child Locator Center (NECLC).
NECLC is only activated through a request by a state agency during a state-declared
disaster or by FEMA. When activated, the toll-free number (1-877-908-9570) is
staffed 24 hours per day.
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Unaccompanied Minors Registry
This online platform collects information from the public related to children who have
been separated from their families due to a disaster. NCMEC then uses this data to
expedite the reunification process by assisting local law enforcement and by cross-
referencing the information about the child against information provided by families
who have contacted NCMEC to report their child missing.
https://umr.missingkids.org/
National Emergency Family Registry and Locator System (NEFRLS)
NEFRLS is only activated in declared disasters and facilitates the reunification of
adults over the age of 21. When activated, the toll-free number (1-800-588-9822).
Welfare Inquiries
The City of Baytown will attempt to answer disaster welfare inquiries to the extent
possible using the registration data obtained at shelters and other facilities. The
EOC Phone Bank will ensure that these inquiries are documented and routed to the
Baytown Police Department and to the ARC. Normal Welfare Inquiries will be
conducted in accordance with Standard Operating Guides and Standing Orders.
STEAR Wellness checks for prolonged incidents will be conducted in accordance with
the city’s STEAR Wellness Check Standard Operating Guide (SOG) for the
medically fragile.
Baytown will attempt to respond to disaster welfare inquiries through the Police
Department. Those inquiries that the City cannot complete will be routed to the ARC
Welfare Inquiry system to answer requests from relatives and friends concerning the
safety and welfare of evacuees or those in disaster areas.
Welfare Inquiries can be assisted by shelter registrations. Assistance may also include
the distribution of postcards to shelter residents for their use in contacting family
members outside the affected area. The organization of the Welfare Inquiry function
may vary considerably. For a small-scale operation, the local ARC chapter may be
able to provide assistance. For a large operation, a Welfare Inquiry team may be
established. The need for the Welfare Inquiry function and its composition depend
on factors such as the number of families affected, media coverage of the event, lack
of communication capabilities in the affected area, and the number deaths, injuries,
and illnesses.
Shelter managers must be aware of the importance of confidentiality in gathering
and releasing information about shelter occupants. Welfare Inquiries will be
addressed to the Liaison Officer and routed to the Baytown Police and the ARC.
Animal Services
The Baytown Health Department has primary responsibility for animal control and
animal service issues within the city. As such, the Baytown Health Department in
conjunction with the Baytown Fire Department, Emergency Management Division
established an Animal Issues Committee (AIC) to address the humane evacuation,
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transport, and temporary sheltering of service animals and household pets in a
disaster. For more information regarding animal services during major disasters or
catastrophic incidents, refer to the Agriculture and Natural Resources Annex
(ESF 11).
Strategy 3 - Coordinate Human Services Resources
The City of Baytown will coordinate with state agencies, federal agencies and VOADs
to provide human services and Individual Assistance (IA) programs. These services
include federal disaster assistance, disaster recovery centers, behavioral or mental
health services, disaster case management, disaster legal services, other needs
assistance, and employee assistance programs.
Disaster Assistance and Disaster Recovery Programs
Disaster Assistance for Disaster Survivors
Individual Assistance (IA) – disaster survivors may be eligible for FEMA disaster
assistance known as Individual Assistance (IA) and consist of the Individuals and
Households Program (IHP), which provides financial help or direct services to those
who have necessary expenses and serious needs if they are unable to meet these
needs through other means. IA mays also consist of Housing Assistance and Other
Needs Assistance.
SBA Disaster Loans - Low-interest disaster loans from the Small Business
Administration (SBA) may be available for businesses of all sizes (including
landlords), private non-profit organizations, homeowners and renters. Low-interest
disaster loans help fund repairs or rebuilding efforts and cover the cost of replacing
lost or disaster-damaged real estate and personal property. Economic Injury disaster
loans are available to businesses and private nonprofits to assist with working capital
needs as a direct result of the disaster.
Disaster Unemployment Assistance (DUA) - The Disaster Unemployment Assistance
(DUA) program provides unemployment benefits to individuals
who have become unemployed as a direct result of a Presidentially declared major
disaster. DUA is administered by the Texas Workforce Commission.
Disaster Recovery Centers (DRCs – The City of Baytown will work with
Harris/Chambers County and the State of Texas to locate and designate
facilities/sites as Disaster Recovery Centers in the Baytown area. DRCs are usually
operated and managed by TDEM and FEMA. DRCs offer in-person support to
individuals and businesses located in declared areas. DRCs typically consist of FEMA,
SBA, USDA personnel available to assist disaster survivors in applying for federal
disaster assistance.
Multi-Agency Resource Centers (MARC) - In large-scale catastrophic incidents, FEMA
and TDEM may not be able to adequately staff or operate enough DRCs to meet the
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ESF 6 – 24
demand for services. In such circumstances, the City of Baytown will coordinate with
local recovery partners and VOADs to host a Multi-Agency Resource Center (MARC)
in the Baytown community. A MARC is a single, “one stop shop” location where public
and private organizations come together to aid those affected by disaster. MARCs are
collaborative operations that consist of municipal departments, county/state
agencies, federal agencies, VOADs, and other NGOs that provide disaster recovery
services.
Disaster Behavioral and Mental Health Services
Disaster Behavioral Health Services and Crisis Counseling Program
The Harris Center for Mental Health and IDD, as the Local Mental Health Authority,
will serve as the lead local agency responsible for disaster behavioral health needs in
the Baytown area. The Harris Center may be among the first to respond to disaster
behavioral health needs by providing acute and ongoing stress management and
counseling services.
However, widespread and catastrophic incidents can significantly impact the Harris
Center’s ability to provide services. When local behavioral health resources become
overwhelmed, state and federal assistance may be made available after a disaster.
If existing local resources are inadequate to meet the need for disaster mental health
services, Texas HHS Disaster Behavioral Health unit serves as the lead state agency,
which can provide the following services:
• Coordinating the deployment of available disaster behavioral health resources
in response to State of Texas Assistance Requests.
• Providing technical assistance, best practices, tools and psychoeducational
materials for local providers, contractors, disaster survivors, crime victims and
survivors, and first responders in impacted communities.
• Coordinating the provision of acute and ongoing stress management and crisis
counseling services for disaster survivors, crime victims and survivors, and
emergency responders.
• Coordinating stress management and counseling services at the local level
through trained disaster behavioral health staff and volunteers.
• Coordinating activities of the Texas Critical Incident Stress Management
Network.
• Preparing and submitting the state application(s) for the Federal Emergency
Management Agency-funded Crisis Counseling Assistance and Training
Program grants.
• Administer, provide technical assistance and monitor compliance of Crisis
Counseling Assistance and Training Program grant staff and providers.
• Providing and coordinating the required Crisis Counseling Assistance and
Training Program training and education for Local Mental Health Authority staff
and other providers participating in the grant program.
In addition to local and state mental health providers, some volunteer organizations
active in disasters can provide crisis counseling to disaster survivors. Local mental
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ESF 6 – 25
health professionals and members of the Baytown Ministerial Alliance may augment
these services.
FEMA also provides grant funds via the Crisis Counseling Assistance and Training
Program (CCP) to support community-based outreach, counseling, and other mental
health services for disaster survivors. Through an interagency agreement, FEMA
works with HHS/SAMSHA to provide technical assistance, consultation, and training
for state and local mental health personnel.
Baytown’s requests for state assets for crisis counseling, CISM, and victim’s services
assistance should be a request to TDEM.
Critical Incident Stress Management (CISM)
Critical Incident Stress Management is a type of crisis intervention designed to
provide support for those who have experienced traumatic events.
The Texas CISM Network was established to assist emergency service personnel who
have experienced critical incidents such as line of duty deaths, mass casualties,
multiple fatalities, and local disasters. The Texas CISM Network teams are comprised
of trained volunteer mental health professionals, peers and select members of the
clergy who provide responsive supportive crisis intervention services and stress
management education to any emergency responder agency or organization in
Texas.
CISM teams are available upon request on a 24-hour basis regardless of whether a
state or federal disaster has been declared. There is no charge for this service,
although reimbursement for travel and lodging expenses might be requested.
Disaster Case Management
In certain declared disasters, designated areas for Individual Assistance (IA) may
require additional support services such as Disaster Case Management (DCM), which
is fully funded by FEMA upon request by the State and County. The DCM program
involves a partnership between a case manager and a disaster survivor to develop
and carry out the survivor’s long-term recovery plan. The DCM program will refer
disaster survivors to existing resources, assist with socio-economic challenges, assist
with disaster assistance registration and appeals, and provide case management
throughout the recovery process. The State of Texas and Harris County manage the
DCM program, if requested and activated for the local area.
Disaster Legal Services
Disaster Legal Services (DLS) provides free legal help to low-income disaster
survivors. DLS is a FEMA funded program. DLS can help with the following:
• Insurance claims for medical bills, loss of property, and loss of life
• New wills, powers of attorney, and other legal papers lost during the disaster
• Home-repair contracts and contractors
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• Problems with landlords
• Proof of home ownership
• FEMA appeals
In addition, Lone Star Legal Aid provides pro-bono disaster legal aid to disaster
survivors in the Baytown area.
Crime Victim Compensation
The Texas Attorney General’s Office manages the Crime Victims’ Compensation (CVC)
Program, which helps crime victims and their immediate families with the financial
costs of crime. CVC covers crime-related costs such as counseling, medical
treatment, funerals, and loss of income not paid by other sources. Eligibility, covered
costs, and application information can be found online at
https://www.texasattorneygeneral.gov/crime-victims/crime-victims-compensation-
program.
Other Needs and Unmet Needs
In addition to the provision of shelter and mass care services, evacuees may need
assistance with clothing, basic medical attention, prescription medicines, disaster
mental health services, temporary housing, and other support services. Some of
these services may be provided by the same volunteer organizations that are
operating shelters. In other cases, the City will rely upon the United Way of
Baytown and Chambers County to identify the needs of those in public shelters to
arrange for assistance from other volunteer organizations and agencies.
Employee Assistance Program
The Baytown Human Resources Department is responsible for providing an Employee
Assistance Program (EAP). The EAP program is confidential program available for all
City of Baytown employees and their family members to help identify and assist them
in resolving various challenges in life. Services include counseling for behavioral or
mental health issues, financial services, legal services, will generator services, work
and life services, and ID recovery services.
Strategy 4 - Coordinate Temporary Housing Resources
Temporary Housing Assistance
This annex only addresses transitional housing, which is the temporary housing needs
of disaster survivors for immediate/intermediate housing (i.e., after shelters close
and before permanent housing solutions are available). Temporary Housing is an
Intermediate Recovery solution.
All housing needs identified during and following a disaster impacting the City of
Baytown will be coordinated through the Baytown Planning and Development
Services Department (PDS). Baytown PDS will also coordinate with the local public
housing authority, the Baytown Area Housing Authority (BAHA). When suitable, BAHA
may aid in identifying available Section 8 housing resources or voucher programs.
The Baytown PDS, Community Development Division manages several housing
programs primarily funded by the U.S. Department of Housing and Urban
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ESF 6 – 27
Development (HUD), which fund programs meant to benefit low-to-moderate income
residents.
The City of Baytown is a sub-applicant to several HUD disaster recovery programs
such as the Community Development Block Grant – Disaster Recovery (CDBG-DR)
and CDBG – Mitigation, which fund various housing and infrastructure projects post-
disaster to enhance community resilience.
The City of Baytown will request assistance from federal/state agencies, VOADs, the
United Way of Greater Baytown, and local social service agencies to help identify
temporary housing resources for those affected by the incident. Temporary Housing
Assistance includes the following:
• Shelters serve as temporary housing solutions during short-term
recovery.
• Transitional Sheltering Assistance
• Temporary Roof Repairs
• Home Repair Programs
• Replacement Programs
• Rental Assistance
• Transportation and Relocation
• Direct Housing
• Hotel/Motel Programs
Homeless Resources
Baytown does not have its own homeless coalition or continuum of care program.
The community falls under the Houston Area Continuum of Care through the Coalition
for the Homeless of Houston/Harris County. There are very limited resources in
Baytown for homeless individuals and families. Most of those in need must be referred
to facilities and services outside of Baytown.
The Bay Area Homeless Services is the primary provider of services to Baytown
homeless persons and information to the City of Baytown. Other providers that serve
Baytown but are located in neighboring areas are: Bridge Over Troubled Waters,
which has an office in Baytown and provides assistance in accessing their shelter in
Pasadena; Bay Area Turning Point, a domestic violence shelter, which has an office
in Chambers County to serve the county and Baytown with crisis intervention and
referrals to their Galveston County shelter; Talent Yield Coalition, Inc. – Marcelous
Williams Resource Center in the Highlands provides case management and homeless
resources; and Sarah’s House located in Pasadena provides emergency shelter and
transitional housing to homeless single homeless women and women with children.
Actions by Phases of Emergency Management
Mitigation:
• Identify mitigation funding and programs to retrofit infrastructure and facilities
to support shelter and mass care operations.
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ESF 6 – 28
• Identify mitigation funding and programs to restore, repair, and reconstruct
resilient housing.
• Identify human service organizations or mental health providers that promote
resilience in recovery.
Preparedness:
• Send selected local officials to shelter management training and encourage
those organizations or agencies that will be making their facilities available for
use as shelters to send their personnel to such training.
• Identify volunteer organizations that could assist in shelter and mass care
operations and develop cooperative agreements.
• In coordination with volunteer organizations, identify suitable shelters and
feeding facilities.
• Sign agreements with volunteer organizations authorizing use of local
government facilities for shelter and mass care operations.
• Encourage schools, faith-based organizations (FBOs), and volunteer groups to
sign written agreements for use of their facilities as emergency shelters.
• Coordinate basic communication and reporting procedures for mass care,
shelter operations, human services, and housing.
• Develop facility setup plans for potential shelters.
• Identify population groups requiring special assistance during an emergency
(i.e., senior citizens, functional and access needs, etc.) and ensure that
preparations are made to provide assistance. Texas 2-1-1 and State of Texas
Evacuation Assistance Registry (STEAR) are two resources easily accessible to
authorized personnel.
• Encourage volunteer groups active in disasters (VOADs) to participate in
emergency exercises.
• Identify agencies or groups that can provide disaster mental health services
and survivors services during and in the aftermath of disasters
• Identify agencies or groups that can provide human services during and in the
aftermath of disasters.
Response:
• Open and staff shelters and mass care facilities.
• Provide information to the public on shelter locations and policies.
• Assist in the registration of evacuees.
• Provide food, clothing, first aid, and other essential services to disaster
survivors.
• Maintain communications between mass care facilities and EOC.
• Provide periodic reports on shelter occupancy and meals served.
• Provide information to victims needing additional services.
• Provide for emergency supplies to disaster survivors as needed through PODs.
• Advocate for the residents of Baytown to receive disaster assistance and relief
aid necessary to support their needs.
• Coordinate with human service organizations, housing authorities, and mass
care groups to support disaster survivors.
Recovery:
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ESF 6 – 29
• Assist evacuees in returning to their homes if necessary.
• Assist those who cannot return to their homes with temporary housing.
• Deactivate shelters and mass care facilities and return them to normal use.
• Inform public of any post-disaster recovery programs or human services that
may be available.
• Assist residents and disaster survivors in registering for disaster assistance.
• Assess needs of survivors and provide assistance, including, but not limited to,
temporary housing, food, clothing, clean-up services, minor home repairs, and
other support.
• Identify temporary housing programs and long-term permanent housing
solutions.
• Assess the need for disaster mental health services for emergency
responders and disaster survivors. Coordinates and arranges for such
support if required.
• Advocate for the establishment of a State/FEMA Disaster Recovery
Center (DRC) in Baytown, if one is needed.
Organization and Assignment of Responsibilities
Organization
The City of Baytown’s normal emergency organization, described in the Basic Plan.
Operations will be organized in accordance with NIMS guidelines.
The Baytown Fire Department, Office of Emergency Management is the lead
coordinating agency for ESF 6 – Mass Care and Human Services and is responsible
for overall coordination of these functions with support from various City
Departments, human service organizations, and VOADs.
The American Red Cross is the lead VOAD responsible for shelter and mass care
operations with volunteer staffing, shelter facility agreements, shelter and mass care
services, and shelter equipment/resources.
The Baytown Parks and Recreation Department is responsible for supporting shelter
and mass care operations by providing staff support and facilities to augment the
ARC.
The City expects to assist the ARC, other volunteer organizations active in disaster
(VOADs), and local volunteer groups and charitable organizations in conducting
shelter, mass care, and human service operations.
The Baytown Planning and Development Services Department is responsible for
supporting housing recovery programs and assisting state/federal agencies with
Individual Assistance (IA) programs.
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ESF 6 – 30
Human services will be provided through the coordinated efforts of local human
services professionals, human service agencies, local volunteer groups, the ARC, SA,
and other non-governmental organizations.
State and federal agencies may be requested to assist in shelter, mass care, housing,
and human services activities conducted in the aftermath of a major emergency or
disaster.
Assignment of Responsibilities
Position / Agency Response Task or Action
Mayor or City Manager • Direct the opening of local shelter and mass care
facilities and the closing of such facilities when they
are no longer needed.
• Approve release of emergency public information
materials on shelter locations and guidance on what
people should bring and not bring to public shelters
prepared by the public information staff.
• Coordinate shelter and mass care efforts with other
local governments, where appropriate.
• Request shelter and mass care support from other
local governments or the State if local resources are
insufficient.
• Ensure that mass care, housing, and human services
is coordinated through the Baytown EOC.
• Provide general guidance and direction for support
of mass care, housing, and human services
operations during emergencies.
Emergency Management
Coordinator (EMC)
• Coordinate shelter and mass care planning with the
Parks and Recreation Director, the Public Information
Officer, the Liaison Officer, the Logistics Section
Chief, other local officials, and volunteer
organizations.
• When the situation warrants, recommend to the
Mayor or City Manager that shelter and mass care
operations be implemented. Recommendations on
the number of facilities to be activated and specific
facilities to be used should be coordinated if possible
with the volunteer organizations that will operate
those facilities.
• Coordinate with the functional managers in the EOC
to provide support for shelter and mass care
activities.
• Receive reports on shelter and feeding operations
from the Liaison Officer. During major emergencies,
summarize shelter and mass care activities in the
periodic Situation Report.
• When conditions warrant, recommend to the Mayor
or City Manager when shelter and mass care facilities
be closed.
• With the support of the Mayor and all City
Departments, identify volunteer and non-profit
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ESF 6 – 31
organizations that are willing to support local shelter
and mass care activities.
• Develop written agreements with volunteer
organizations relating to shelter and mass care
support.
Incident Commander (IC) • Identify requirements for shelter and mass care
support needed as a result of an evacuation.
• Coordinate basic medical assistance for individuals in
mass care facilities.
• Monitor health and sanitation conditions in mass care
facilities.
Baytown Parks and Recreation
Department
• The Parks and Recreation Director will serve as or
designate a person to serve as the Shelter and Mass
Care Branch Director in the Baytown EOC to
coordinate shelter operations and provide city support
to Shelter Management Teams and Shelter Managers.
• In coordination with volunteer organizations that
normally operate shelters and feeding facilities,
identify potential shelter, POD, and mass care
facilities. See Appendix 1 to this annex.
• With the support of The Emergency Management
Coordinator and City Attorney, develop emergency
agreements with volunteer groups for the use of
facilities owned by local government as shelters and
encourage other agencies, organizations, and groups
that have suitable facilities to sign similar
agreements.
• Coordinate and disseminate common shelter
operating guidelines to volunteer organizations
operating shelters.
• Coordinate planning for mass feeding where needed.
• Work with the ARC to coordinate human services
support for evacuees in shelters.
• Identify requirements for facility security and fire
protection requirements for shelters to law
enforcement agencies and the fire service.
• Coordinate resource support for shelter operations.
• Receive reports on shelter and mass care operations
and provide summary information for inclusion in the
periodic Situation Report.
• Arrange transportation for shelter equipment, food,
cots, blankets, and other shelter supplies to shelter
and mass care locations.
Shelter Managers • Staff Shelter Management Teams and open shelters
and keep them operating as long as necessary.
• Register shelter occupants and assist in answering
disaster welfare inquiries.
• Arrange for mass feeding if required.
• Identify additional resource requirements to the EOC.
• Coordinate with the EOC to provide individual and
family support services as needed.
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ESF 6 – 32
• Submit a daily mass care facility status report to the
Shelter and Mass Care Branch Director in the EOC
that indicates the number of shelter occupants, the
number of meals served, and the condition of the
facility, and also identifies any problem areas.
• Maintain records of supplies received and expended.
• When directed, terminate operations, turn in
equipment and unused supplies, return the facility to
its original condition, and submit a final report mass
care facility status report.
• Receive reports on shelter and mass care operations
and provide summary information for inclusion in the
periodic Situation Report.
• Respond to disaster welfare inquiries and route them
to Police Department or the EOC until that function is
assumed by the ARC.
Commodity POD Managers • Staff and open POD sites and keep them operating as
long as necessary.
• Arrange for feeding of POD staff if required.
• Identify resource requirements to the Shelter & Mass
Care Branch Director.
• Submit a daily status report to the Shelter & Mass
Care Branch Director that indicates the number of
families/cars served, commodities distributed and
commodities ordered, as well as staffing levels and
any problem areas.
• Maintain records of supplies received and expended.
• When directed, terminate operations, turn in
equipment and unused supplies, return the site to its
original condition, and submit a final mass care status
report.
Baytown Planning and
Development Services
Department
• The Baytown Planning and Development Services
Department will coordinate the city’s community
development and housing functions in collaboration
with local human service organizations and VOADs.
• Coordinates with TDEM and FEMA regarding
Individual Assistance (IA) programs and housing
missions.
• Coordinates with the GLO, HGAC, and Harris County
regarding CDBG-DR and CDBG-Mitigation funding
opportunities.
• Manages the Community Development Block Grant –
Disaster Recovery (CDBG-DR) and CDBG-Mitigation
funding programs and initiatives to support local
projects.
• Coordinates with VOADs and other non-profit
partners in regard to Long Term Community
Recovery efforts.
• Coordinates permitting, inspections, and
reconstruction of housing post-disaster.
• Coordinates with local, state, and federal housing
agencies on temporary and permanent housing
recovery programs and funding opportunities.
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ESF 6 – 33
Baytown Police Department /
Law Enforcement
• Provide for security and law enforcement at shelter
and mass care facilities.
Baytown Fire Department • Inspect shelter and mass care facilities for fire safety.
• Provide and maintain shelter fire extinguishers.
• Train shelter management personnel in fire safety
and incipient fire suppression.
Liaison Officer (LOFR) • Coordinate with Operations Section for transportation
for evacuees to shelters and for return of evacuees
without vehicles to their homes.
• Coordinate with Logistics Section for shelter
equipment, food, clothing, blankets, comfort kits, and
other shelter supplies to support ARC.
• Coordinate with ARC and other volunteer
organizations for provision of clothing, blankets,
personal care items and other items to evacuees.
• Coordinate with Harris and Chambers County Health
Officials for disaster mental health services for
occupants of mass care facilities.
Public Information Officer (PIO) • Provide information to the public on the locations of
shelters and shelter operating policies.
• Provide updates on the emergency situation to shelter
managers to be passed on to shelter occupants.
• Provide public information on closure of shelters and
return of evacuees to their homes.
Baytown Health Department –
Animal Control Division
• Coordinate arrangements to aid Shelter Managers
with evacuees arriving at shelter and mass care
facilities with pets.
• Be prepared to provide shelter managers with
information on procedures for handling evacuees with
pets.
Baytown Public Works and
Engineering (PWE) Department
• To the extent possible, ensure power, water supply,
and sanitary services are operable at shelter and
mass care facilities during emergency conditions.
Baytown Area Housing
Authority (BAHA)
• Serves as the local public housing authority.
• Provides quality affordable housing to low and
moderate income residents in Baytown.
• Coordinates with the Baytown Planning and
Development Services Department.
American Red Cross • Pursuant to a cooperative agreement between the
ARC and Baytown, the ARC has agreed to do the
following:
a. Staff and operate shelter and mass care
facilities.
b. Register shelter occupants.
c. Provide mass feeding for disaster survivors
and emergency workers.
d. Provide emergency assistance for other
essential needs.
e. Process inquiries from concerned families
outside the disaster area.
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ESF 6 – 34
Goose Creek Consolidated
Independent School District
(GCCISD)
• Shelter students in school buildings when the
situation warrants.
• Provide for school facilities to serve as shelters or the
employee staging center per signed agreements.
United Way of Greater Baytown
and Chambers County
• Maintains the Baytown Area and Chambers County
Disaster Recovery (BACC-DR) long-term recovery
group.
• Assists residents with unmet needs and coordinates
access to resources to provide disaster relief.
• Coordinates with 211 Helpline Program to connect
residents with food, child care, transportation, and
other critical information and resources.
Voluntary Organizations Active
in Disasters (VOADs)
• Coordinates efforts and programs offered by
voluntary organizations, community organizations,
and non-governmental organizations.
• VOADs provide mass care, human services, housing,
emergency assistance, legal aid, and other critical
disaster recovery services.
Harris Center for Mental Health
and Intellectual and
Development Disabilities
• Serves as the Harris County Local Mental Health
Authority.
• Coordinates with local governments and Texas HHS
on disaster crisis counseling and other mental health
services post-disaster.
Harris County Housing &
Community Development
• Coordinates IA programs and human services for
Harris County.
• Manages social service programs for Harris County
residents.
• Administers CDGB-DR and CDBG-Mitigation funds.
• Provides housing assistance.
Texas Health and Human
Services Commission
• Responsible for public health and mental health
preparedness in the State of Texas.
• Provides health and human services programs such
as food stamps, disaster behavioral health services,
CISM, and is the lead agency for human services and
medical services.
Direction, Control, and Coordination
General
The Mayor or City Manager shall establish priorities for and provide policy guidance
for shelter, mass care, and human services activities.
The EMC will provide general direction to the Shelter and Mass Care Branch Director
regarding shelter and mass care operations and to the human services and individual
assistance functions led by the Baytown Planning and Development Services
Department and local VOADs.
The Shelter and Mass Care Branch Director will provide coordination between the
EOC/Incident Commander on shelter and mass care activities, communicating and
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ESF 6 – 35
coordinating as necessary with volunteer organizations that participate in shelter
operations or mass feeding and other departments and agencies.
Shelter Managers, Shelter Management Teams, and facility managers will be
responsible for the operation of their individual shelter facilities.
The Baytown Planning and Development Services Department will coordinate
temporary housing and individual assistance (IA) functions in collaboration with
state/federal agencies, local housing and homeless organizations and VOADs.
The City of Baytown will coordinate with state/federal agencies, VOADs, and other
social service agencies to provide human services and emergency assistance.
Operations, direction and control will be consistent with NIMS guidelines.
Lines of Succession
The line of succession for the Director of Parks and Recreation:
• Assistant Director, Parks and Recreation
• Superintendent of Recreation
• Superintendent of Parks
The line of succession for the Director of Planning and Development Services is:
• Director, Planning and Development Services
• Assistant Director, Planning and Development Services
• Assistant Director, Building Services
The line of succession for the Emergency Management Coordinator:
• Deputy Emergency Management Coordinator
• Fire Chief
• Designee assigned by the City Manager or Fire Chief as approved by Mayor.
The line of succession for other shelter and mass care personnel will be in accordance
with existing policies and COOPs.
Readiness Levels
Level 4 – Normal Conditions
• Coordinate mass care, shelter, and human services with non-profits and
VOADs prior to a disaster and ensure plans and personnel are in place.
Level 3 – Increased Readiness
• Alert key staff and volunteer organizations involved in shelter and mass care
activities of threat.
• Review personnel availability and assignments.
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ESF 6 – 36
• Assess potential shelter and mass care requirements.
• Review and update lists of lodging and feeding facilities and check on
availability of facilities.
• Monitor the situation.
Level 2 – High Readiness
• May activate the EOC to a limited extent to ensure coordination of readiness
activities.
• Place staff on standby and make preliminary assignments. Identify
personnel to staff the EOC when activated.
• Update estimate of shelter and mass care requirements.
• In coordination with volunteer organizations, check on availability of facilities
and identify facilities that will actually be used.
• In coordination with volunteer organizations, develop tentative shelter and
feeding facility opening sequence
• Identify requirements for pre-positioning equipment and supplies.
• Draft information for release to the public concerning shelter locations.
Level 1 – Maximum Readiness
• Deploy selected personnel to the EOC to monitor the situation and support
precautionary activities. Place other staff on-call.
• Update estimate of shelter and mass care requirements.
• In coordination with volunteer organizations, update potential facility use
plans and tentative facility opening sequence.
• In coordination with volunteer organizations, develop updated staff
assignments for emergency operations.
• Consider precautionary staging of personnel, equipment, and supplies.
• Coordinate with the ESF 2 on anticipated communications requirements.
• Coordinate with the ESF 1 on anticipated transportation requirements.
• If appropriate, provide the public information about potential shelter
locations.
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ESF 6 – 37
Information Collection, Analysis, and Dissemination
Information collection, analysis and dissemination is the primary responsibility of
the Baytown Office of Emergency Management (OEM) regarding emergency
management and homeland security matters on a daily basis. However, this
function can be fulfilled by other city departments with appropriate subject matter
expertise (SMEs), such as public health related issues. This function is also
supported by the Public Information Officer (PIO) and Liaison Officer (LNO) when
serving in the Baytown Emergency Operations Center (EOC).
The primary objective of Baytown EOC is the timely gathering of accurate,
accessible, and consistent information during an emergency and sharing vetted
intelligence to ensure coordinated timely response, recovery, prevention,
protection, and mitigation. Display boards and other technologies for tracking
emergency activities will be utilized in the EOC.
During EOC operations, the Planning Section Chief (PSC) and Situation Unit Leader
(SITUL) are primarily responsible for information collection, analysis and
dissemination of incident-specific information with the compilation of the EOC
Situation Report (SITREP) and position updates on WebEOC and other information
sharing platforms. The PIO and LNO assist the Planning Section in maintaining
situational awareness and a common operating picture.
Personnel operating in the Baytown EOC will maintain an Incident Position Log and
provide status updates upon request to ensure situational awareness and a
common operating picture.
The Baytown EOC Standard Operating Guide (SOG) maintains a list of available
trusted and verified authoritative resources that can be used to collect and analysis
information and data. Information flow consist of all levels of government, private-
sector, and non-profits organizations sharing information. The Liaison Officer and
EMC will coordinate with external organizations to collect and share information.
The EMC and IC will determine Critical Information Requirements (CIRs) and
Essential Elements of Information (EEIs) with a reporting deadline, which will be
outlined in the Incident Action Plan (IAP).
The Baytown IT Services Department, Public Works and Engineering Department,
and Planning and Development Department maintain employees with GIS mapping
skills that can used to analyze and display critical data and essential elements of
information (EEIs) via dashboards, maps, and storyboards.
Additional details on information collection, analysis, and dissemination can be
found in the following documents: Warning and Alert Annex, Communications
Annex, Emergency Public Information Annex, and the Baytown EOC Standard
Operating Guide.
For Official Use Only (FOUO)
ESF 6 – 38
Administration, Finance, and Logistics
Administration and Finance
Records and Reports
Shelter and feeding facility managers shall maintain a record of supplies received and
expended. Copies of these records will be provided to the Shelter and Mass Care
Branch Director in the EOC, who shall maintain a consolidated file with the
Documentation Unit. All human service, emergency assistance, individual assistance,
disaster mental health, and temporary housing documentation will be maintained by
the EOC Document Unit Leader.
Shelter Managers will report occupancy and number of meals served figures to the
Shelter and Mass Care Branch Director in the EOC daily.
The EOC will include shelter occupancy information in the periodic Situation Report
sent to the Disaster District and other agencies. Information on the Situation Report
is provided in the EOC Standard Operating Guide.
The ARC and other volunteer groups may also report shelter and feeding information
through their organizational channels.
Baytown PDS Department will report data regarding Individual Assistance,
Temporary Housing, and activity of VOAD/human service organizations to the EOC.
Documentation of Costs
All departments and agencies will maintain records of personnel and equipment used
and supplies expended during shelter and mass care operations as a basis for possible
cost recovery from a responsible party or insurer or possible reimbursement of
expenses by the state or federal government.
Logistics
The Baytown Office of Emergency Management maintains a Disaster Supply
Warehouse with shelter cots, blankets, comfort kits, and other mass care supplies.
Shelter Managers and the Shelter Branch Director will need to submit a Resource
Request to the Baytown EOC to request these supplies and equipment.
If shelter and mass care needs cannot be satisfied with local resources and those
obtained pursuant to inter-local agreements and from volunteer organizations,
authorized local officials may request state assistance from TDEM.
The primary communications between shelter and mass care facilities and the EOC
will be by cellphone or telephone. If cellphones or telephones cannot be used, radios
should be provided; amateur radio operators may be able to assist with
communications needs.
Refer to the Logistics and Resource Management Annex (ESF) 7 for more
details.
For Official Use Only (FOUO)
ESF 6 – 39
Plan Development and Maintenance
The Emergency Management Coordinator, Director of Parks and Recreation, and
Director of Planning and Development Services are responsible for developing and
maintaining this annex.
This annex will be reviewed annually and updated every 5-years in accordance with
the schedule outlined in the Basic Plan and Emergency Planning Standard
Operating Guide (SOG).
Training and Exercises
The training and exercises developed for this annex will be included in the city’s
Integrated Preparedness Plan (IPP).
Training
The Baytown OEM will maintain a NIMS Training Policy for all city employees
assigned to the Baytown Emergency Operations Center and offer regularly
scheduled Incident Command System (ICS)/ National Incident Management System
(NIMS) training courses to city employees.
Baytown OEM will schedule mass care and human services training courses upon
request by the Primary Agency, Support Agencies, or other interested city
employees.
Exercises
Exercises shall periodically include a mass care and human service scenario
based on the hazards faced by this jurisdiction. Volunteer organizations that
participate in mass care and human service operations shall be invited and
encouraged to participate in such exercises.
An exercise may be conducted to test the Mass Care and Human Services Annex
(ESF) 6 and train personnel on the use of this document. The exercise will include
primary and support agencies assigned to this annex and city employees assigned
to the Baytown Emergency Operations Center (EOC). After the exercise is
completed the City shall record the following information:
• List of participants;
• Lessons learned via an After-Action Report (AAR); and
• Recommendations or changes to this annex via an Improvement Plan (IP).
The plan may be revised based on the exercise recommendations or after a real
flood incident.
For Official Use Only (FOUO)
ESF 6 – 40
References
• FEMA National Mass Care Strategy, 2015.
• FEMA P-785, Shelter Field Guide, 2015.
• FEMA, National Mass Care Strategy, Multi-Agency Sheltering Support Plan
Template, 2014.
• FEMA, Guidance on Planning for Integration of Functional Needs Support
Services in General Population Shelters, 2010.
• FEMA, Catastrophic Housing Annex, August 2012.
• ARC Disaster Cycle Services, Reunification Standards and Procedures,
January 2017.
• ARC Hurricane Evacuation Shelter Selection Standards, Version 1.0, 2018.
• Mass Care Annex (ESF-6), State of Texas Emergency Management Basic
Plan, January 2025.
• American Red Cross Texas Gulf Coast Region home page.
• NFPA 1616, Standard on Mass Evacuation, Sheltering, and Re-entry
Programs
Appendices and Attachments
• Appendix 1 – Potential Shelter Facilities
• Appendix 2 – Shelter and Mass Care Documents
• Appendix 3 – Volunteer Organizations Active in Disasters (VOADs)
• Appendix 4 – Disaster Assistance Resources
• Appendix 5 – Shelter and Mass Care Staffing
• Appendix 6 – Pandemic Shelter Operations
• Appendix 7– Cooling and Warming Centers SOGs
For Official Use Only (FOUO)
ESF 6 – 41
Appendix 1 – Potential Shelter Facilities
Buildings listed in this appendix have been surveyed for their suitability as temporary
shelter facilities. The buildings surveyed fall into the following categories:
• Governmental or non-profit facilities such as gymnasiums, community centers
or activity centers for senior citizens.
• Public schools with multi-purpose rooms, showers, and cafeteria facilities.
• Faith-based/religious organization facilities such as activity centers with
kitchens.
The following are definitions used in the facilities listing:
• Estimated Shelter Capacity: The estimated short-term capacity of the facility
based on 40 square feet per person.
• Estimated Feeding Capacity: The estimated number of people for which the
facility can prepare food e.g. three simple meals per day.
Shelter Agreement:
• Indicate the organization the building owner(s) have the shelter agreement
with e.g. ARC, SA, churches, or other volunteer group(s).
• An “N” or a “No” response in this column indicates that the building is not
presently covered by a shelter agreement.
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ESF 6 – 42
POTENTIAL SHELTER FACILITIES
NAME/ADDRESS CONTACT CAPACI
TY
FEEDING
CAPACITY
SHELTER
AGREEMENT
Baytown Community
Center
2407 Market Street
Baytown, TX 77520
Parks & Recreation Director
(281) 420-6591
342
1500/day
ARC / City
Lee College District
Security Chief
(281) 425-6475
(281) 425-6888
City
Goose Creek Consolidated
ISD
Multiple locations
Deputy Superintendent
Administrative Services
281-707-3870
281-896-4960
Emergency Manager
281-707-3853
n/a
n/a
ARC / City
Baytown Junior School
7707 Bayway Drive
Baytown, TX 77520
Deputy Superintendent
Administrative Services
281-707-3870
281-896-4960
Emergency Manager
281-707-3853
530
530/day
ARC
Cedar Bayou Junior
School
2610 Cedar Bayou
Baytown, TX 77521
Deputy Superintendent
Administrative Services
281-707-3870
281-896-4960
Emergency Manager
281-707-3853
390
400/day
ARC
Sterling High School
300 W. Baker
Baytown, TX 77520
Deputy Superintendent
Administrative Services
281-707-3870
281-896-4960
Emergency Manager
281-707-3853
560
600/day
ARC
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ESF 6 – 43
NAME/ADDRESS CONTACT CAPACI
TY
FEEDING
CAPACITY
SHELTER
AGREEMENT
Horace Mann Junior
School
310 S. Hwy 146
Baytown, TX 77521
Deputy Superintendent
Administrative Services
281-707-3870
281-896-4960
Emergency Manager
281-707-3853
335
350/day
ARC
San Jacinto Christian
Church
710 Alamo St.
Baytown, TX 77520
Tammie Terrill
281-421-5900
100
100/day
ARC
Memorial Baptist Church
611 W. Sterling St.
Baytown, TX 77520
Alan Beck
Associate Pastor
281-427-1725
162
100/day
ARC / City
Missouri St. Church of
Christ
3400 S. Highway 146
Baytown, TX 77520
Tim Read
281-813-9619
80 200/day ARC
Northside Baptist Church
300 Cedar Bayou
Baytown, TX 77521
Bill Walker
832-904-8643
125 200/day ARC
Wooster Baptist Church
7007 Bayway Drive
Baytown, TX 77520
Louise Ziriax
713-429-3625
200 350/day ARC
Mercy Gate Church
9627 Eagle Drive
Mont Belvieu, TX 77523
Donald Gibson
Pastor
(281) 576-5201
City
For Official Use Only (FOUO)
ESF 6 – 44
Appendix 2 – Shelter and Mass Care Documents
The City of Baytown has written agreements with the American Red Cross to
provide the following city facility for emergency shelter and mass care: Baytown
Community Center, 2407 Market Street, Baytown, TX.
The City may act independently from the American Red Cross to open Emergency
Temporary Shelters and Short-Term Shelters, but have agreed to coordinate with
the American Red Cross, and will transfer management of these facilities to the
American Red Cross as soon as staff and supplies are available and locations
determined.
The City of Baytown has a written agreement with local organizations for shelter
and mass care if needed for an Emergency Temporary Shelter.
The City of Baytown and the Goose Creek Consolidated Independent School District
have an executed Interlocal Agreement for the use of GCCISD facilities if needed
for emergency temporary shelters. The exact schools will be identified and
announced on an as needed basis. City employees, school employees and
volunteers will staff the shelters with the assistance of the ARC. The Goose Creek
CISD also maintains shelter agreements directly with the American Red Cross for
specific schools designated as shelters. The American Red Cross will provide
training in shelter management, if requested.
The City also maintains an inter-local agreement with Goose Creek CISD to provide
transportation resources for evacuation assistance. The City has agreed to provide
law enforcement officers to support security and emergency services at the
facilities.
The City of Baytown has written agreements with several local churches to open
and staff shelters upon request from the City of Baytown. Some of these facilities
also have written agreements with the American Red Cross and management of
these facilities will be transferred to the Red Cross as soon as possible.
NOTE: All written agreements are on file with the Baytown Office of Emergency
Management and the City Clerk’s Office.
For Official Use Only (FOUO)
ESF 6 – 45
Appendix 3 – Volunteer Organizations Active in Disasters
(VOADs)
The following volunteer agencies provide disaster relief services in major disasters
and traditionally provide extensive assistance to local governments:
VOAD
CONTACT INFO
Texas Gulf Coast VOAD
www.tgcrvoad.org
(832) 613-9275
American Red Cross
Texas Gulf Coast Region
Greater Houston Chapter
www.redcross.org/local/texas/gulf-coast.html
(713) 526-8300
United Way of Greater Baytown and
Chambers County
https://www.unitedwaygbacc.org/
(281) 424-5922
Southern Baptist Convention Disaster
Relief
https://sbtexas.com/disaster-relief/
Email: txrelief@sbtexas.com
The Salvation Army
East Harris County
www.salvationarmyhouston.org/east-harris-
county
(713) 378-0020
Houston Food Bank www.houstonfoodbank.org/
(713) 223-3700
Workforce Solutions Baytown Email: Baytown@wrksolutions.com
(281) 837-0079
Lone Star Legal Aid https://lonestarlegal.blog/
(800) 733-8394
Houston Responds
East Harris
https://www.houstonresponds.org/eastharris
Email: eastharris@houstonresponds.org
(281) 201-3999
Interfaith Ministries for Greater
Houston
https://www.imgh.org/
(713) 533-4900
Catholic Charities of the Archdiocese
of Galveston-Houston
https://catholiccharities.org/
(713) 526-4611
Volunteer Houston https://volunteerhouston.org/
info@volunteerhouston.org
(713) 533-3190
Love Network of Baytown https://www.lovenetworkofbaytown.org/
Email: lovenetworkofbaytown@gmail.com
(281) 422-5683
Talent Yield Coalition
Marcelous Williams Resource Center
http://talentyieldcoalition.org/contact/
(855) 449-1472
Harris County Homeless Outreach
Team (HOT Team)
Email: homelessoutreach@sheriff.hctx.net
(713) 221-6000
For Official Use Only (FOUO)
ESF 6 – 46
Appendix 4 – Disaster Assistance Resources
FEMA Registration 800-621-3362
Baytown Housing Authority 281-427-6686
New Horizons – clothes, shoes, toys only 281-424-3300
Baytown Resource and Assistance Center Food
vouchers and gas vouchers, prescriptions 281-424-5752
Love, Inc. – Diapers and Formula 281-422-5683
Food Pantry
Celebration of Life 281-420-2592
Missouri St. Church of Christ 281-427-0459
First Assembly of God 281-426-4209
Cedar Bayou Baptist Church 281-422-2172
Texas Health and Human Services 1300 S.
Highway 146 281-427-9480
Salvation Army 800-725-2769
Texas Workforce Commission-Northshore 281-458-1155
Texas Unemployment Office 512-463-2222
Harris County – Baytown Annex 701 W.
Baker Rd. 281-427-7311
Harris County Baytown Health Center-Baytown 281-427-5195
Harris County Mental Health and IDD-24/7 713-970-7070
Harris County Social Service 281-422-8564
For Official Use Only (FOUO)
ESF 6 – 47
Appendix 5 – Shelter and Mass Care Staffing
EMERGENCY OPERATIONS CENTER
Shelter and Mass Care Branch Director
This position is either the Parks and Recreation Director or a designated city
employee that serves in this capacity within the Emergency Operations Center in
the Operations Section. The Shelter and Mass Care Branch Director is responsible
for overall shelter operations and coordinating with shelter facilities, shelter
managers, and shelter management teams.
SHELTER MANAGEMENT TEAM
Shelter Management Teams will primarily be staffed by volunteers with Shelter
Facilities and/or the American Red Cross staff and volunteers. The Texas Military
Forces (TMF) also can provide Shelter Management Teams to support shelter and
mass care operations.
In addition, the City will maintain a roster of city employees that have completed
ARC shelter training courses. City employees may be tasked with staffing and
supporting opening of shelters, until relieved by volunteers or ARC staff. To
manage shelter operations a Shelter Management Team lead by a Shelter Manager
will be established.
Shelter Manager
Provide overall administrative support for and supervision of the Shelter
Management Team, Shelter Staff, and all functions in the shelter. Ensure that the
shelter residents’ needs are being met. The Shelter Manager coordinates with the
host facility and American Red Cross as needed. Provides daily reports to the
Shelter and Mass Care Branch Director in the EOC. Refer to the FEMA P-785 Shelter
Field Guide for Position Checklist.
Registration Unit
The Registration Unit Leader and workers are responsible for ensuring that persons
entering and leaving the shelter go through the registration process. Complete,
legible and accurate information about the residents of the shelter is needed. Refer
to the FEMA P-785 Shelter Field Guide for Position Checklist.
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ESF 6 – 48
Feeding Unit
The Feeding Unit Leader and staff advise the Logistics Unit and the Shelter Manager
of what food and supplies are needed; monitor the preparation and serving of food;
keep accurate records of meals served and food and supplies received and
expended; and, if requested, record the hours of food preparation and serving staff.
Refer to the FEMA P-785 Shelter Field Guide for Position Checklist.
Dormitory Unit
The Dormitory Unit Leader and staff are responsible for setting up and assigning
sleeping areas within the dormitory; coordinating with Logistics or the Shelter
Manager for cots, blankets and hygiene kits; and monitoring the dormitory area to
maintain a safe and quiet environment for residents to sleep and rest. Refer to the
FEMA P-785 Shelter Field Guide for Position Checklist.
Logistics Unit
Logistics personnel have a variety of important tasks to perform to ensure proper
shelter operations. These tasks include supporting the use of the facility; ensuring
the safety, security and sanitation of the shelter; and procuring, tracking, storing,
distributing, and returning or disposing of supplies and equipment at the shelter.
Refer to the FEMA P-785 Shelter Field Guide for Position Checklist.
Health and Medical Unit
Health and Medical Unit should be made available to ensure that shelter residents’
basic health needs and applicable public health standards are met. This is often
achieved by referring residents to the appropriate medical providers. The City of
Baytown Fire Department will provide Emergency Medical Services as needed. Refer
to the FEMA P-785 Shelter Field Guide for Position Checklist.
For Official Use Only (FOUO)
ESF 6 – 49
Appendix 6 – Pandemic Shelter Operations
This appendix provides an overview of the modified and adapted strategies
necessary to deliver safe and effective shelter operations during a pandemic.
Establishing and operating shelters in a pandemic environment requires
adjustments to standard procedures in order to support the safety of the public and
shelter staff.
CONCEPT OF OPERATIONS
Non-Congregate Shelters
Non-Congregate sheltering is a temporary location where each individual or
household has living space that offers some level of privacy, such as hotels,
dormitories, or camp grounds. Non-Congregate Shelters are preferred during a
pandemic to minimize spread and allow for isolation and/or quarantine.
Congregate Shelters
Congregate Shelters should only be operated when there are no other non-
congregate options available to meet the immediate needs of residents.
Non-Congregate vs. Congregate Sheltering Decision Tree
For Official Use Only (FOUO)
ESF 6 – 50
STAFFING
All staff assigned to shelter operations must be in good health and must be
screened prior to deployment. Staff must be able to maintain 12-hour shift, 6 days
per week and be able to stay at shelter overnight. Staff must thoroughly
understand CDC and local public health guidelines for using Personal Protective
Equipment (PPE) and maintaining social distance. Staff must wear a mask or face
covering at all times.
The Baytown Parks and Recreation Department will appoint a staff member to serve
as the Shelter and Mass Care Branch Director in the Baytown EOC and provide staff
to assist in initial shelter operations until the shelter operation can transition to the
American Red Cross.
The American Red Cross will serve as the lead partnering agency to provide shelter
and mass care services. This includes staffing and operating non-congregate and
congregate shelters.
MEDICAL AND MENTAL HEALTH SERVICES
Maintain recommended social distance and infection control measures. Social
distancing procedures include:
• Maintain a 6-foot distance when talking with clients and providing assistance;
• Avoid having multiple people in a confined space;
• Offer masks or face coverings and tissues to all clients.
Health Screening Area
In non-congregate settings, health screenings may be conducted on a virtual basis
by asking clients questions prior to issuing them a room at a hotel, dorm, or camp
site.
In a congregate setting, there must be a Health Screening Area established that
ensures all access to the building is limited and allows all people to be screened
prior to entry.
The Health Screening Area can be established outside the facility or inside, if this
area is able to accommodate social distancing and provide separate routes to the
dormitory area and Isolation Care Area.
All health screening staff should wear appropriate PPE including gloves, N-95
masks, gown, and goggles/eye protection before entering the screening area.
Health Screening Questions
• Do you or anyone in your household currently have a cough, fever, or any
type of respiratory illness?
• Have you or anyone in your household been in close contact with anyone
who has been confirmed as having the virus?
• Are you or anyone in your household a healthcare worker caring for a patient
confirmed with the virus?
• Take the clients temperature using a digital infrared thermometer.
For Official Use Only (FOUO)
ESF 6 – 51
If the client answers YES to any question, send them to the Isolation Care Area. If
NO to all, proceed to the dormitory area.
If the client has a temperature of 99.5°F or higher send client to the isolation care
area.
Isolation Care Areas should be established in Congregate Shelters to manage
clients exhibiting symptoms or illness. Shelter clients that show signs of illness or
have been diagnosed must be separated from the general shelter population in the
Isolation Care Area to avoid spread and transmission.
• Set Up Isolation Care Area
• Set medical cots 6 feet apart on all sides in a head-to-toe configuration
• Use privacy screening between cots if available
• Post signage outside and inside Isolation Care Area
o Isolation Care Area – Authorized Health and Medical Staff only
• Place a face mask, tissue pack, blankets, bottled water, and snack on cot
• Place hand washing station at entrance to Isolation Care Area, restroom
area, and additional areas in ICA.
• Set up 2 – 4 tables for equipment
• If possible, provide entertainment equipment (TV/Radio) for clients
Medical Supplies
• Masks and face coverings
• Gloves
• First Aid Kits
• Wash cloth and towels
• File box for health records
• Biohazard waste bags and containers
• Stethoscopes
• Blood pressure cuffs
• Pulse oximeter
• Disinfectant spray and solution
• Alcohol wipes
• Digital infrared thermometer
• Glucometer and strips
Screening and temperatures checks are required for all shelter clients and shelter
staff. All clients, partners, staff, and visitors are required to be screened before
entering a congregate shelter.
For the safety of the Shelter Staff no one with the exception of the Health and
Medical Unit or appropriate public health official / first responder may enter the
individual non-congregate living space of a client.
SUPPORT SERVICES
During a pandemic several support services will not be available onsite, but can be
provided virtually to limit exposure and transmission of the virus.
For Official Use Only (FOUO)
ESF 6 – 52
FEEDING SERVICES
Adhere to practices that avoid transmission of the virus when providing food and
supplies. Residents located at non-congregate shelters receive the equivalent of
three meals per day. Meals should be individually packaged.
There are various options to providing meals to residents in non-congregate
sheltering, which include the following:
• Client pick-up food, snacks, and beverages at a designated area at set times.
• Deliver food, snacks, and beverages to clients once per day.
• Caterer/Vendor provides delivery of food, snacks, and beverages.
Maintain a 6-foot distance when talking to clients and offering food or other
supplies. All food workers should utilize the “set it down and step back” method by
placing the item down and stepping back 6 feet. When delivering meals utilize the
“drop and go” method by leaving the food at the clients door, knocking on the door,
and stepping away.
All food workers should wash hands before and after each meal service. Food
workers should not enter Isolation Care Areas; only the Health and Medical Unit is
allowed to enter.
All staff handling food and beverages must wear:
• Mask or face covering
• Food-safe disposable gloves
• Hair nets or hats
• Beard nets (if you have facial hair)
SANITATION AND DISINFECTION
Maintain a safe environment through increased cleaning and disinfection of
facilities. Clean all surfaces with sanitizing spray, wipes or bleach solution.
VISITORS
Visitors to the shelter may be limited to minimize exposures. All visitors must be
screened prior to entering the shelter.
TRAINING
Training will be provided to Shelter Staff to ensure pandemic protocols are
implemented. Training will cover topics such as social distancing measures, health
screening, isolation care areas, virtual support services, feeding, and
donning/doffing PPE.
ANIMALS
In congregate shelters, service animals are allowed inside the shelter. Household
pets may not be allowed in shelters and may need accommodation at an Animal
Shelter. The Baytown Health Department will assist Shelter Staff in identifying
appropriate animal shelters for pets and will assist in sheltering service animals.
For Official Use Only (FOUO)
ESF 6 – 53
AREA OF RESPONSIBILITIES
AGENCY RESPONSIBILITIES
Emergency Management Coordinator • Determine if sheltering is needed
• Determine if sheltering can be provided in
non-congregate setting
• If only a congregate setting is available,
determine appropriate site to allow for an
Isolation Care Area and space
requirements.
• Coordinate with Shelter Branch Director
and American Red Cross to establish
shelters.
American Red Cross • Serve as the lead partnering agency for
Shelter and Mass Care services.
• Establish, staff, and operate shelters.
• Coordinate with Baytown EOC, EMC, and
Shelter Branch Director.
Baytown Parks and Recreation • Provide Staff to initiate shelter operations
until it can transition to Red Cross.
• Staff the EOC Shelter Branch Director
position to coordinate with Red Cross and
onsite Shelter Managers.
Baytown Health Department • Provides health and safety guidance
• Coordinates with Baytown Local Health
Authority and County LHAs.
Shelter Branch Director • Serves in the Baytown EOC
• Coordinates all Shelter Operations
• Liaises with on-site Shelter Managers
• Coordinates with Red Cross and
partnering agencies to determine number
and location of non-congregate or
congregate shelters.
Shelter Manager • Reports to EOC Shelter Branch Director
• Determines onsite and virtual staffing
requirements for all shifts
• Coordinates the provision of services
• Maintains awareness of shelter operations
provides status updates to EOC.
• Reports daily counts to EOC
• Ensures social distancing, PPE, and
isolation care areas are implemented
• Deconflicts issues.
Health Screening /Registration Unit • Coordinates with Health Unit to provide
screeners
• Screens and registers all clients, staff,
and visitors
• Registers all clients to maintain a working
list of census count
Feeding Unit • Utilizes “set it down, step back” and “drop
and go” methods to minimize
transmission.
For Official Use Only (FOUO)
ESF 6 – 54
AGENCY RESPONSIBILITIES
• Adheres to food safety standards.
• Provide feeding services to clients.
Lodging/Dormitory Unit • Services may be provided virtually
• Tracks and reports number of rooms
reserved, occupied, and nightly
rates/costs.
• If in congregate setting, ensures
adequate space requirements are
maintained.
• Adheres to social distancing measures
when providing services.
• Provides support to clients including
feeding support, communicating with
clients, organizing inventory, delivering
items, and other duties as assigned.
• Coordinate virtual support services.
Logistics Unit • Determines the quantity of rooms, dorms,
or camp sites are needed for non-
congregate shelters.
• Coordinates room reservations and
lodging needs for non-congregate
shelters.
• Orders resources such as PPE, first aid
equipment, shelter supplies, and food.
• Maintains and assists in cleaning and
sanitation of shelter facilities.
• Assist in establishing internet and
communication at congregate shelter
facility to provide virtual support
operations.
Health and Medical Unit • Conducts initial screening assessments
and virtual daily wellness checks.
• Provides virtual disaster mental health
support to clients.
• Notifies public health of all clients who
have 1) been exposed and are not ill
(self-quarantine) or 2) symptomatic with
virus (self-isolation).
• Coordinates with Baytown Fire to arrange
medical transport.
References:
• Red Cross, Sheltering in COVID-19 Affected Areas, April 2020
• Red Cross, COVID-19 Sheltering Non-Congregate Guidelines, May 2020
• Red Cross, COVID-19 Feeding Guidelines, April 2020
For Official Use Only (FOUO)
ESF 6 – 55
Appendix 7– Cooling and Warming Centers SOGs
The Baytown EOC will open Cooling/Warming Centers during extreme temperature
incidents, in conjunction with the city departments. These operations follow
established procedures outlined in the City’s Extreme Cold and Heat Standard
Operating Guidelines (SOGs). For more information regarding operations during
extreme temperature events, refer to the Extreme Cold SOG and Extreme Heat
SOG.
FOR OFFICIAL USE ONLY (FOUO)
CITY OF BAYTOWN
Volunteer and Donations
Management
Support Annex
BAYTOWN FIRE DEPARTMENT
OFFICE OF EMERGENCY MANAGEMENT
OCTOBER 2025
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 1
Approval and Implementation
City of Baytown, Texas
Volunteer and Donations Management Support Annex
This annex is hereby approved for implementation and supersedes all
previous editions.
Teresa McKenzie, CGFO, CPFIM Date
Director of Finance
Clifford Hatch Date
Director of Parks and Recreation
David J. Alamia Jr., MPA, CEM Date
Emergency Management Coordinator
10/27/25
10/27/2025
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 2
Record of Changes
CHANGE # DATE OF
CHANGE DESCRIPTION CHANGED BY
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 3
Table of Contents
Approval and Implementation ........................................................................................................ 1
Record of Changes .......................................................................................................................... 2
Primary and Support Agencies ....................................................................................................... 5
Primary Agency .......................................................................................................................... 5
Support Agencies ........................................................................................................................ 5
Authority ......................................................................................................................................... 5
Purpose ............................................................................................................................................ 5
Scope ............................................................................................................................................... 5
Explanation of Terms ...................................................................................................................... 6
Acronyms .................................................................................................................................... 6
Definitions................................................................................................................................... 6
Situation and Assumptions ............................................................................................................. 8
Situation ...................................................................................................................................... 8
Assumptions ................................................................................................................................ 8
Concept of Operations .................................................................................................................. 10
Objectives ................................................................................................................................. 10
General ...................................................................................................................................... 10
Strategy 1 – Volunteer Management ........................................................................................ 11
Volunteer Management Staff Support .................................................................................. 11
Volunteer Management Facilities ......................................................................................... 12
Strategy 2 – Donations Management ........................................................................................ 12
Donations Management Staff Support .................................................................................. 12
Donations Management Facilities......................................................................................... 13
Actions by Phases of Emergency Management ........................................................................ 15
Organization and Assignment of Responsibilities ........................................................................ 17
Organization .............................................................................................................................. 17
Assignment of Responsibilities................................................................................................. 18
Direction, Control, and Coordination ........................................................................................... 21
General .................................................................................................................................. 21
Coordination ......................................................................................................................... 21
Lines of Succession............................................................................................................... 22
Readiness Levels ........................................................................................................................... 22
Level 4 – Normal Conditions ................................................................................................ 22
Level 3 – Increased Readiness .............................................................................................. 22
Level 2 – High Readiness ..................................................................................................... 23
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Level 1 – Maximum Readiness............................................................................................. 23
Information Collection, Analysis, and Dissemination .................................................................. 23
Administration, Finance, and Logistics ........................................................................................ 25
Administration and Finance ...................................................................................................... 25
Reports and Records ............................................................................................................. 25
Cost Documentation.............................................................................................................. 25
Logistics .................................................................................................................................... 26
Plan Development and Maintenance ............................................................................................ 26
Training and Exercises .............................................................................................................. 26
Training ................................................................................................................................. 26
Exercises ............................................................................................................................... 27
References ..................................................................................................................................... 27
Appendices and Attachments ........................................................................................................ 28
Appendix 1 – Sample Current Donation Needs List ................................................................ 29
Appendix 2 – Sample Record of Donation Offer ..................................................................... 30
Appendix 3 – Sample Public Information Release ................................................................... 31
Appendix 4 – Volunteer and Donations Management Operations Guide ................................ 32
Appendix 5 – Volunteer Waiver Forms .................................................................................... 45
Appendix 6 – Volunteer Hours Tracking Form ........................................................................ 46
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Primary and Support Agencies
Primary Agency
• Baytown Finance Department, Purchasing Division
• Baytown Parks and Recreation Department, Community Engagement
Support Agencies
• Baytown Office of Emergency Management (OEM)
• United Way of Greater Baytown Area and Chambers County
• Voluntary Organizations Active in Disaster (VOADs)
• Long-Term Recovery Groups
Authority
• See Section 1 of the Basic Plan for general authorities.
• City of Baytown, Code of Ordinances, Chapter 22 – Emergency Management
• Volunteer and Donations Management Annex, State of Texas Emergency
Management Plan.
Purpose
The purpose of the Volunteer and Donations Management Support Annex is to
outline the concept of operation, organizational arrangements, and responsibilities
for coordinating the efforts of volunteer groups and local government to manage
donations of goods and services that may occur in the aftermath of a disaster.
This document will outline how to manage city volunteers and how to coordinate
with voluntary organizations active in disaster (VOADs) and other volunteer disaster
relief groups for use before, during, and after a disaster. This plan will also outline
how solicited and unsolicited donations will be directed, accepted, managed, and
incorporated into disaster relief efforts as appropriate within the City of Baytown.
Scope
This Support Annex was developed in a collaborative effort involving multiple
organizations and agencies to meet the needs and expectations of governmental
and non-governmental organizations within the City of Baytown. This Support
Annex is applicable to city departments and voluntary and nonprofit organizations
identified in the organization and assignment of responsibilities section of this
document that manage volunteers and donations in coordination with the City of
Baytown during a disaster.
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Explanation of Terms
Acronyms
AAR-IP After-Action Report / Improvement Plan
ACS Adventist Community Services
ARC American Red Cross
BACCDR Baytown and Chamber County Disaster Recovery
CBO Community-Based (Volunteer) Organization
CERT Community Emergency Response Team
CIR Critical Information Requirement
DAC FEMA’s Disaster Assistance Center
DCTF Donations Coordination Taskforce
DCTFL Donations Coordination Taskforce Leader
DOO Donations Operations Office
DS Donations Specialist
EEI Essential Elements of Information
EOC Emergency Operations Center
EOP Emergency Operations Plan or Basic Plan
FEMA Federal Emergency Management Agency
FBO Faith-Based Organizations
LTRG Long-Term Recovery Group
MAW Multi-Agency Warehouse
MRC Medical Reserve Corps
NGO Non-Governmental Organization
NIMS National Incident Management System
PA FEMA’s Public Assistance Program
PIO Public Information Officer
POD Points of Distribution
PSA Public Service Announcement
DSA Donations Staging Area
SBA U.S. Small Business Administration
SITREP Situation Report
SOG Standard Operating Guide
STAR State of Texas Assistance Request
TDEM Texas Division of Emergency Management
TSA The Salvation Army
UWGBACC United Way of Greater Baytown Area & Chambers County
VOAD Voluntary Organizations Active in Disaster
VRC Volunteer Reception Center
Definitions
Affiliated Volunteer: Any volunteer who is associated with an established
volunteer organization or agency pre-disaster who has registered as an emergency
worker and has trained for a specific role or function in the disaster preparedness,
response, or recovery phases.
Cash: Currency, checks, money orders, credit cards, securities, etc.
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Citizen Corps: A community-based program, administered by FEMA, which
includes Citizen Corps councils and other programs that bring government and
nongovernmental entities together to conduct all-hazards emergency preparedness
and operations. Through its network of state, territorial, tribal and local councils,
Citizen Corps increases community preparedness and response capabilities through
collaborative planning, public education, outreach, training, and volunteer service.
Additionally, programs like the Community Emergency Response Team Program
train members of the public in basic disaster response skills, such as fire safety,
light search and rescue, team organization, and disaster medical operations.
Goods: Food, water, clothing, equipment, toys, furniture, pharmaceuticals,
bedding, cleaning supplies, etc.
Nongovernmental Organization (NGO): An entity with an association that is
based on the interests of its members, individuals, or institutions. It is not created
by a government, but it may work cooperatively with government. Such
organizations serve a public purpose and are not for private benefit. Examples of
nongovernmental organizations include faith-based charity organizations and the
American Red Cross.
Spontaneous Unaffiliated Volunteer: A person who is not affiliated with a locally
recognized volunteer organization and is not an emergency worker but offers his or
her help with disaster response and/or recovery efforts. Spontaneous unaffiliated
volunteers may possess skills, training, or knowledge that can be useful in response
and recovery efforts.
Voluntary Organizations Active in Disaster (VOAD): A consortium of voluntary
organizations that collectively seek to foster, through cooperation in mitigation and
response, more effective service to people affected (imperiled or impacted) by a
disaster. There are national, state, and local VOADs. Members of this umbrella
organization include organizations with voluntary memberships and constituencies;
not-for-profit structures that qualify under Internal Revenue Service regulations for
501(c)(3) status; and organizations with a disaster response program and policy for
commitment of resources (i.e., personnel, funds, and equipment) to meet the
needs of people affected by disaster, without discrimination as to race, creed,
gender, age, or handicap.
Volunteer: Someone who willingly provides his/her services without receiving
financial compensation.
Volunteer Reception Center: A facility and program that provides a means of
connecting volunteers with service opportunities in government agencies or
nongovernmental organization relief agencies. The VRC can be set up as a walk-in
center or as an online process, or a combination of two or more of these strategies.
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Situation and Assumptions
Situation
As noted in the Basic Plan, The City of Baytown, Texas is at risk from a number of
hazards that could threaten public health and safety as well as private and public
property. Should a major disaster or a lesser emergency where there is high level
of media interest occur, many individuals may want to donate money, goods,
and/or services to assist the survivors or participate in the recovery process. The
amount of donations offered could be sizable, and we could face extreme difficulties
in receiving, storing, securing, sorting, transporting, accounting for, and distributing
the donations to the disaster Survivors and supervising volunteer workers desiring
to assist in the effort.
The City of Baytown cannot operate a system to collect, process, and distribute
donations to disaster survivors. Such a system is best operated by Community-
Based Organizations (CBOs), Faith-Based Organizations (FBOs), and other
voluntary Non-Governmental Organizations (NGOs) who have successfully handled
donations in the past. Baytown does, however, desire to coordinate its donation
management efforts with volunteer organizations and agencies.
According to Chapter 418.074 of the Texas Government Code, the Mayor may
accept a donation (in the form of a gift, grant, or loan) on behalf of the City of
Baytown for purposes of emergency services or disaster recovery. In turn, the City
of Baytown may use all the services, equipment, supplies, materials, and funds to
the full extent authorized by the agreement under which they are received.
Assumptions
• Should a major emergency or disaster occur, donations may be
given/delivered to the City whether or not they are requested. In large
quantities, such donations may overwhelm the city’s capability to handle and
distribute them.
• In a catastrophic disaster affecting the City of Baytown, both the city and
local volunteer groups and agencies may be adversely affected and may not
be able to cope with a sizable flow of donations.
• Donated goods may be offered to local volunteer groups or simply delivered
to the City of Baytown. Donations of cash for disaster survivors may be
offered to the City as well.
• Many individuals donate goods that are not needed by disaster survivors or
offer services that are not needed in the recovery process. Receiving and
sorting unneeded goods or hosting volunteers who do not have needed skills
wastes valuable resources; disposing of large quantities of unneeded goods
can be a lengthy and very costly process.
• In some cases, the amount of donations received by a community may
receive more media interest and attention, rather than the emergency
situation and the magnitude of the disaster or the number of survivors.
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• The problem of unneeded donations can be reduced, but not eliminated, by
developing and maintaining a current list of disaster needs, screening
donation offers, and providing information to potential donors through the
media on current needs and those items and services that are not required.
• Most personal donations are given little expectation of return other than the
personal satisfaction of giving and perhaps some acknowledgment of thanks.
However, some donations may be unusable, have “strings attached,” or not
really be donations at all. They may:
• Be given with an expectation of some sort of repayment, publicity, or a tax
write-off.
• Be items that are out-of-date (such as expired foodstuffs or pharmaceuticals)
unusable (broken furniture; dirty or torn clothing) or unsuitable (food that
requires refrigeration, winter coats in June).
• Be volunteer services that do not meet the announced or advertised
expectations or capabilities; skilled trades that are not properly licensed or
certified.
• Be provided illegally as a ruse in a fraudulent process to obtain money from
disaster survivors.
• Be offered at a “discount” to disaster survivors, with any real savings being
minimal or nonexistent.
• Be offered in limited quantity as a deception to simply show an “association”
with government or disaster relief as a basis for future advertising or
publicity.
• Donated goods may arrive in the local area without warning, day or night.
Delivery drivers will want to know where they should deliver their load and
who will unload it. They typically want their cargo off-loaded quickly so they
can minimize down-time.
• Donations will frequently arrive unsorted and with minimal packaging and
markings. Donations may be packed in boxes, crates, barrels, or garbage
bags; some items may be in bins or on pallets. When such goods are
received, they must typically be sorted, inspected, repackaged and labeled,
temporarily stored, and then transported to distribution sites to be picked up
by disaster survivors.
• Donors may want to:
o Know what is needed in the local area -- cash, goods, and/or services.
o Know how they should transport their donation to the local area, or if
there is someone who can transport it for them.
o Start a “drive for donations” to help disaster survivors, but have no
knowledge of what to do and how to do it.
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o Earmark their donation for a specific local group or organization, such
as a church, fraternal society, or social service agency, or want to
know to who, specifically, received their donation.
o Have their donation received by a local official and/or receive a letter
of appreciation or public recognition.
o Want to be fed and provided with lodging if they are providing
volunteer services.
• Disaster survivors may:
o Desire immediate access to donations before they are inspected,
sorted and ready to be disseminated at appropriate distribution sites.
o Believe that the donations have not been or are not being distributed
fairly if they do not have information on the process of distributing
donations.
o Have unmet needs which can be satisfied by additional donations.
Concept of Operations
Objectives
The objectives of Baytown’s Volunteer and Donations Management Program are to:
• Assist in determining the needs of disaster survivors and inform potential
donors of those needs through the media and a variety of other means.
• Ensure that goods and cash donations that can be used to recover from a
disaster are received, processed, and distributed to survivors.
• Ensure that offers of volunteers and donated services that will contribute to
the recovery process, are accepted and acknowledged appropriately.
• Discourage the donations of goods and services that are not needed, so that
such donations do not in themselves become a major problem.
General
The City of Baytown does not have the resources to enable us to operate a system
to collect, process, and distribute donations to disaster survivors. Such a system is
best operated by Community-Based Organizations (CBOs), Faith-Based
Organizations (FBOs), and other voluntary Non-Governmental Organizations
(NGOs) that have successfully handled donations and volunteer services in the
past.
However, experience has shown that volunteer groups can be overwhelmed by the
scale of donations and need certain government assistance (such as traffic control,
security, and help in identifying facilities to receive, sort, and distribute donated
goods); additionally, large numbers of donations may be sent to the local
government itself. Hence, the City desires to coordinate donation and volunteer
management efforts with volunteer organizations and agencies.
Recognized local and national charities e.g., NGOs, CBOs, FBOs, and the voluntary
(disaster relief) agencies have been accepting, handling, and distributing donations
for many years. These NGOs are skilled in the donation’s management process,
and they should be the first recourse for collecting and managing donations after a
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major emergency or catastrophic disaster. Donors outside of the local area should
be encouraged to work through recognized community, state, or national social
service organizations or voluntary human resource providers in the community in
which they live. These organizations are capable of receiving donations in areas
across the State or nation and then earmarking assistance for a particular disaster.
The City recognizes that donations of cash to NGOs for disaster relief allows those
organizations to purchase the specific items needed by disaster survivors or provide
vouchers to disaster survivors so that they can replace clothing and essential
personal property with items of their own choosing. Cash donations also reduce the
tasks of transporting, sorting, and distributing donated goods. Therefore, cash is
generally the preferred donation for disaster relief.
The Volunteer and Donations Management program for The City of Baytown is
composed of several organizational elements and will coordinate with NGOs as
needed at a level suitable for the anticipated workload. The organizational
elements include the Donations Specialist as lead, the Volunteer Agency Liaison,
the Finance/Administration Section Chief, The Logistics Section Chief, and the Public
Information Officer.
Strategy 1 – Volunteer Management
Volunteer Management Staff Support
City Staff and City Volunteers
The City of Baytown Volunteer Management during a disaster will be coordinated by
a Volunteer Agency Liaison (VAL), which will be staffed by the City of Baytown’s
Community Engagement Specialist. The VAL will be assigned by the Baytown EOC
as a liaison to assist in the coordination of volunteer management efforts between
city volunteers, volunteer groups, and unaffiliated volunteers.
City Staff and the public that want to volunteer with the City of Baytown will
register using the city’s Baytown Serves online system and website. Baytown
Serves is a City initiative that seeks to meet community needs by developing City
department opportunities, connecting volunteers and organizations with projects,
and partnering with local nonprofits to expand their reach. City of Baytown
Volunteer Liability and Waiver Forms can be located in Appendix 5.
The VAL will also share volunteer opportunities available from United Way of
Greater Baytown and Chambers County Volunteer Connect online system with city
employees and across all city social media and websites to volunteer for disaster
relief efforts.
The Baytown EOC Logistic Section Chief shall be assigned to assist the Volunteer
Agency Liaison (VAL) in the management of materials by providing for a safe,
secured, facility to serve as a Volunteer Reception Center (VRC).
The Baytown EOC Public Information Officer (PIO) shall be assigned to work closely
with the Volunteer Agency Liaison (VAL) to ensure volunteer needs, information on
the availability of volunteer, and pertinent information on the operation of the
volunteer management is provided to the media for dissemination to the public.
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VOAD and Non-Profit Volunteers
The local community within the City of Baytown has several volunteer organizations,
non-profits, and volunteer organizations active in disaster (VOAD). The City of
Baytown coordinates with the United Way of Greater Baytown Area and Chambers
County via its Volunteer Connection online system, which maintains a continuous
roster of disaster relief volunteer opportunities. Other local non-profits and faith-
based organizations also assist with volunteers during disasters that coordinate with
the City of Baytown; including the Gulf Coast Regional VOAD.
Citizen Corps Volunteers
The Harris County Citizens Corps maintains several active volunteer programs that
can provide volunteer assistance during an emergency or major disaster including
the following programs:
• Community Emergency Response Team (CERT)
• Medical Reserve Corps (MRC)
• Fire Corps
• Volunteers in Police Service (VIPs)
The City of Baytown Office of Emergency Management (OEM) maintains a Community
Emergency Response Team (CERT) training program that offers courses twice a year
for local residents. Those that complete the training course are encouraged to join
local CERT groups, such as BayCERT or the Harris County Citizens Corps. These
volunteers provide critical volunteer services and serve as force multipliers during
disasters.
Another group that can provide volunteers during a disaster or public health
emergencies, includes the Medical Reserves Corps (MRC), which is managed by the
Harris County Public Health Services Department.
Volunteer Management Facilities
The Volunteer Reception Center (VRC) is a facility where spontaneous, emergent,
unaffiliated volunteers are assembled, registered, assigned recovery tasks, and
provided logistical and other support. Volunteers may be assigned to operate various
donation management facilities, to provide direct assistance to survivors (such as
clean-up and home repair), or to assist City departments in recovery operations.
The Volunteer Reception Center should be located in reasonable proximity to the
disaster area to allow access in a safe environment.
Strategy 2 – Donations Management
Donations Management Staff Support
Donations Specialist (DS). The City’s Purchasing Manager shall serve as a liaison and
coordinate the donation management efforts between voluntary NGOs and the City
of Baytown.
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The Finance Section Chief shall be assigned to assist the Donations Specialist in the
management of donations of materials or money.
The Logistic Section Chief shall be assigned to assist the Donations Specialist in the
management of materials by providing for Donations Staging Area (DSA): a safe,
secured, facility within which to store donated goods and materials for future
distribution or donation warehouse space.
The Public Information Officer (PIO) shall be assigned to work closely with the
Donations Specialist to ensure donation needs, information on the availability of
donated goods, and pertinent information on the operation of the donations is
provided to the media for dissemination to the public.
The Donations Coordination Taskforce Leader (DCTFL) shall be appointed in writing
by the Mayor and Emergency Management Coordinator when this support annex is
updated. This individual will be responsible for coordinating donated goods,
services, and monetary contributions accepted on behalf of the City of Baytown and
other local non-profits.
The Donations Coordination Task Force (DCTF) works with government agencies,
Nongovernmental Organizations (NGO), and the private sector to assess and
coordinate the collection, warehousing, and distribution of donated funds, goods,
and services. Upon establishment, the DCT provides general direction for the
donations program. Composed of representatives of local long-term recovery
group, local non-profits, and appropriate government officials, it should meet
regularly to implement donations management. Oftentimes, the core of the group is
an existing association of local volunteer agencies such as the Voluntary
Organizations Active in Disaster (VOAD) and the Long-Term Recovery Group. This
may be established as a sub-committee or work-group of the United Way BACC-DR.
Donations Management Facilities
All of the facilities listed below are established after a disaster has occurred. To
facilitate rapid activation of the facilities, suitable local locations for each facility
should be identified in pre-emergency preparedness planning. Some of the facilities
listed below may be co-located if suitable locations are available.
In coordinating use of facilities, it is important that those providing facilities
understand that some of these facilities may need to continue operations for an
extended period. All of these facilities will be largely staffed by volunteers.
Donations Operating Office
The Donations Operations Office (DOO) coordinates operation of the donations
management program in the aftermath of a disaster; it further:
• Maintains a Current Needs List that identifies donations that are needed and
donations that are not needed. (See Appendix 1 for a sample of a Current
Donations Needs List.)
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• Maintains a record of the following, as appropriate:
o Phone responses and referrals.
o Cash donations received and distributed.
o Donated goods received and distributed.
o Volunteer workers utilized and tasks accomplished.
• Handles correspondence related to the donation and volunteer management
program.
• Ensures an appropriate accounting and disbursing system is established for
any cash donations received.
• Works closely with the Public Information Officer (PIO) to ensure donation
needs, information on the availability of donated goods, and pertinent
information on the operation of the donations and volunteer management
program is provided to the media for dissemination to the public.
Phone Bank
A Phone Bank is normally established to receive and respond to offers of donations
and disseminate other disaster-related information. Depending on the goods or
services offered and the current local situation, the Phone Bank may refer some
donors to other agencies that may be better equipped to handle their donations. The
Phone Bank may also be used to provide disaster-related information to callers.
Donation offers received by phone for goods and services on the Current Needs List
will normally be recorded on a Record of Donation Offer, which will be provided to
the Donations Operations Office for follow-up action. See Appendix 2 for an example
of the Donation Offer Record.
The Phone Bank should work closely with the City of Baytown Emergency Operations
Center (EOC) to advise on items needed and not needed; to obtain official, updated
disaster relief information for rumor control and victim assistance referrals; to
provide data for government situation reports; etc.
Donations Staging Area (DSA)
A DSA may be established to receive, inspect, sort, organize, repackage if necessary,
and temporarily store donated and other goods before transporting them to
Distribution Sites where survivors can pick them up. It is normally located outside of
the disaster area and is operated by volunteer workers.
If needed, a local jurisdiction may submit a State of Texas Assistance Request (STAR)
for warehouse support by the state and/or voluntary organizations. The Texas
Division of Emergency Management (TDEM) will coordinate with Texas Voluntary
Organizations Active in Disaster (VOAD) to set up and support a Multi-Agency
Warehouse (MAW).
Adventist Community Services is typically the lead voluntary agency in Texas to assist
with warehousing and managing unsolicited donations. The organization has a
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systematic warehousing management plan to assist local jurisdictions in coordinating
the management of large quantities of donations.
Distribution Sites
Distribution Sites are locations from which ready-to-use goods (received directly from
donor agencies or from a DSA or cash vouchers will be distributed to disaster
survivors).
They are typically operated by nationally-recognized volunteer NGOs such as United
Way of Greater Baytown Area and Chambers County, The Salvation Army (TSA) and
the American Red Cross (ARC) or by local community-based (volunteer) or Faith-
Based Organizations (FBOs). Distribution sites are generally located in proximity to
areas where disaster survivors are living. They may be housed in facilities owned by
volunteer groups, facilities owned by local government or in donated space. They
may also be incorporated into the City Sponsored Points of Distribution (PODs) of
emergency supplies for the public.
Actions by Phases of Emergency Management
Donations and Volunteer Management, as a function, primarily occurs during the
recovery phase of an emergency. However, some donations and volunteer
management activities should occur during the preparedness and response phases
of emergency management.
Preparedness
• The Donations Specialist and Volunteer Agency Liaison shall conduct periodic
meetings with various NGOs and local volunteer agencies to establish pre-
disaster donations and volunteer management planning and assign
responsibilities for various donations management activities.
• Prepare and update this annex to outline local donations and volunteer
management plans.
• Identify possible sites for the Donations Staging Area, Distribution Sites, and
a Volunteer Reception Center.
• Work with NGOs to develop tentative operating procedures for the Donations
Staging Area, Distribution Sites, and a Volunteer Reception Center to
determine how those facilities will communicate with the EOC and each other.
• Identify and coordinate with those volunteer organizations that could provide
assistance in operating Baytown’s donations and volunteer management
program.
• Brief EOC Section Chiefs, department heads, and local volunteer groups on a
periodic basis about the local donations and volunteer management program.
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Typically, this takes place during the Operations Briefing during the start of
each Operational Period.
• Through the PIO, brief the local media so they understand how the donations
and volunteer program will work so they can be prepared to advise the public
of specific donation and volunteer needs, discourage donations of unneeded
items, disseminate information on the availability of donated goods, and
provide other information as applicable.
• Provide flyers and other written guidelines for resident groups on how they can
contribute to disaster relief with their donations and how a donations
management program typically operates.
• Consider including donation and volunteer management in local emergency
management exercises to test donations and volunteer management plans and
procedures.
• Establish contingency procedures that provide for activating a donations
account to receive and disburse monetary donations.
Response
• Review the donations and volunteer management program with senior
government officials.
• Identify and prepare specific sites for donations management.
• Notify NGOs of the potential need to staff donations and volunteer
management facilities.
• Provide the media (through the PIO) with information regarding donation and
volunteer needs and procedures, and regularly update that information.
Recovery
• The Donations Specialist and Volunteer Agency Liaison should determine which
donations and volunteer management facilities will and will not be activated.
• Activate NGOs to set up the donations and volunteer management facilities
that are activated and determine how each facility will be logistically
supported.
• Assist the NGOs with their efforts to staff donations and volunteer
management facilities with volunteer or paid workers. Assist with conducting
on-the-job training as needed.
• Coordinate and communication with NGOs to ensure that donations are
collected, sorted, stored, distributed, and properly dispose, if necessary.
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• In coordination with the PIO, provide regular updates to the media on
donations procedures, progress, status, and the Current Needs List (goods and
services that are needed and not needed).
• Continually monitor donations and volunteer management operations and
determine when the donations and volunteer management facilities should
close down, be consolidated, or when the donations and volunteer
management program can be terminated.
• Receive those records of donations made to the City and, where appropriate,
thank donors.
• Coordinate with the NGOs to determine the needs for continuing assistance to
survivors, depending upon the resources and donations available. The
Baytown and Chamber County Disaster Recovery (BACCDR) may be activated
as the Long-Term Recovery Group (LTRG)
• Work with NGOs to remain informed of accounts of expenses, individual work
hours, etc. Donations activities and functions are not generally reimbursable;
however, if certain expenses are considered for reimbursement, accurate
records will have to be submitted. Local jurisdictions may qualify for in-kind
cost sharing for volunteer hours worked during declared disasters through the
Federal Emergency Management Agency (FEMA). This is often referred to as
soft match. Soft match allows local jurisdictions under declared and
emergencies to apply volunteer labor towards the non-federal share of grant
costs under FEMA’s Public Assistance (PA) Program for other applicants
conducting otherwise eligible work.
Organization and Assignment of Responsibilities
Organization
The organization for Volunteer and Donations Management in the aftermath of a
disaster shall consist of the organizations and facilities described in this annex,
supplemented by government personnel and other resources where needed,
available and appropriate. The organizations described in this annex are composed
primarily of volunteers; the facilities described in this annex will be primarily operated
by volunteers.
The normal City of Baytown emergency organization, described in the Basic Plan and
depicted in Attachment 3 to the Basic Plan, will carry out government activities in
support of donation and volunteer management.
The Finance and Administration Section Chief is responsible for managing monetary
donations, in various forms of financial assistance, that are made to the City of
Baytown government for disaster relief, subject to any regulations that may be
enacted by the City Council.
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The Donations Specialist and Volunteer Agency Liaison shall manage the overall
donations and volunteer program and coordinate the efforts of voluntary NGOs and
local government. The Donations Specialist and Volunteer Agency Liaison shall be or
get familiar with the role of Volunteer Organizations Active in Disasters (VOADs).
Assignment of Responsibilities
Position / Agency Response Task or Action
Mayor/City Manager/EMC • Appoint a Donations Coordination Taskforce
Leader.
• Work with participating organizations to facilitate
an effective donations and volunteer program
• When activated, monitor the operations of the
donations and volunteer management program
• EMC will coordinate with CERT, MRC, and Citizen
Corps volunteer programs.
Donations Specialist • Serves as a liaison to partnering agencies to help
manage the flow of donated goods, funds, and
services
• Determine if the city will accept donations during
a disaster.
• Manages all city accepted donations.
• Coordinates planning and preparedness of the
donations management program
Review and make recommendations to the
Emergency Management Coordinator to maintain
the currency of this Support Annex and Standard
Operating Guide.
Maintains open communication, such as via
conference calls and e-mail, with the appropriate
stakeholders, including VOAD, CBOs, FBOs, long
term recovery groups, and the private sector.
• Work with the Finance/Administration and
Logistics Chiefs to determine the best method for
handling and distributing large-volume or high-
value donations received from the public or
private entities.
• In coordination with the PIO, and as approved by
the Incident Commander, provide the media with
information on donations management for
dissemination to the public.
• Provide City officials with regular reports on
donations management operations.
• Ensure required donations system-related
records are maintained.
Volunteer Agency Liaison • Serves as a liaison to partnering agencies to
assist with volunteer management.
• Manages all city sponsored volunteer groups and
programs.
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• Coordinates with local organizations offering
volunteer opportunities post-disaster.
• Refers general public interested in volunteering
to UWGBACC or other local volunteer groups.
• Coordinate planning and preparedness of the
operations of the volunteer management
program
• Coordinate with NGOs, CBOs, and FBOs, to
determine which volunteer management
functions should be activated after a disaster
occurs and update a volunteer system and
operational process before, during, and after a
disaster.
• Assist with identifying a location for a Volunteer
Reception Center.
• Help the NGOs make decisions on when to
terminate or consolidate volunteer management
functions.
• Determine, in conjunction with the City Attorney,
the procedures for preparing for and handling
liability issues involving volunteers that are
assisting the City in donations management
operations. Wherever possible, the volunteers
should NOT be performing services for or in the
name of the City, but of the NGO or volunteer
agency that they are affiliated with.
• Where these individuals may be performing
volunteer services directly for the City, they may
be entitled to medical coverage; accident and
injury claim compensation; Worker’s
Compensation coverage; reimbursement for
stolen property; or even restitution for
inappropriate comments, discrimination, or
harassment. Appropriate registration forms,
criminal background checks, drug tests (where
required) and Hold Harmless Agreements shall
be executed prior to allowing volunteers to
engage in any field operations in the City’s name
in accordance with the City’s Volunteer Services
Policy.
• In coordination with the PIO, and as approved by
the Incident Commander, provide the media with
information on volunteer management for
dissemination to the public.
• Provide City officials with regular reports on
volunteer management operations.
• Ensure required volunteer system-related
records are maintained; including tracking
volunteer hours worked.
Logistics Section Chief • Assist the Donations Specialist and Volunteer
Agency Liaison in developing a donations and
volunteer management program for the City of
Baytown and in preparing operating procedures
for the donations and volunteer management
functions.
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• Meet as necessary to coordinate, update, and
collaborate on the donations and volunteer
system and operational process before, during,
and after a disaster.
• Assist the Donations Specialist and Volunteer
Agency Liaison in determining which donations
and volunteer management functions should be
activated after a disaster occurs.
• Provide advice to the Donations Specialist and
Volunteer Agency Liaison on NGOs and local
volunteer agencies for managing the various
donations and volunteer management functions.
• Assist in maintaining records on donations and
volunteer activities.
• Provide a location for a: Donations Staging Area
(DSA), and Volunteer Reception Center.
• Work with the Donations Specialist to determine
the best method for handling and distributing
large-volume or high-value donations received
from the public or corporate entities.
• Help the Donations Specialist and Volunteer
Agency Liaison make decisions on when to
terminate or consolidate donations and volunteer
management functions.
Finance/Administration
Section Chief
• Assist the Donations Specialist and Volunteer
Agency Liaison in developing a donations and
volunteer management program for the City of
Baytown and in preparing operating procedures
for the donations and volunteer management
functions.
• Meet as necessary to coordinate, update, and
collaborate on the donations and volunteer
system and operational process before, during,
and after a disaster.
• Assist the Donations Specialist and Volunteer
Agency Liaison in determining which donations
and volunteer management functions should be
activated after a disaster occurs.
• Establish a donations account for receiving and
disbursing monetary donations.
• Ensure written disbursing procedures are
prepared so that account disbursing officials
have a clear mandate on how to prepare
financial assistance methods.
• Ensure that all transactions are monitored and
documented in accordance with existing City of
Baytown Policy.
• Assist in maintaining records on donations
activities.
• Work with the Donations Specialist to determine
the best method for handling and distributing
large-volume or high-value donations received
from the public or private entities.
• Help the Donations Specialist and Volunteer
Agency Liaison make decisions on when to
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terminate or consolidate donations management
functions.
Public Information Officer • The Director of Public Affairs shall be assigned to
work closely with the Donations Specialist and
Volunteer Agency Liaison to ensure donation and
volunteer needs, information on the availability
of donated goods, and pertinent information on
the operation of the donations and volunteer
management program is provided to the media
for dissemination to the public.
Non-Governmental
Organizations
• The designated NGO shall coordinate the
volunteer and donations management efforts of
volunteer groups and local government.
• Coordinate equipping and staffing the DSA
facility, VRC facility, and Distribution Sites.
• Develop operating procedures for and train staff
to operate the DSA, VRC, and Distribution Sites.
• Supervise DSA, VRC, and Distribution Site
operations.
• Keep the Donations Specialist and Volunteer
Agency Liaison in the EOC appraised of
operations, issues, and needs.
Direction, Control, and Coordination
General
The Donations Specialist and Volunteer Agency Liaison are responsible for all
governmental activities involved with the jurisdiction’s donations and volunteer
management system.
NGOs, CBOs, FBOs, and VOAD will manage the donations and volunteer
management program, supervise their own donations and volunteer management
program personnel, and coordinate the efforts of volunteers.
The work of volunteers and paid government employees at a donations and
volunteer management facility will be directed by the supervisor of that facility.
Volunteers working as an integral part of a recognized NGO (e.g., United Way of
Greater Baytown Area and Chambers County, the American Red Cross, the
Adventist Community Services, The Salvation Army, etc.) will respond to direction
from those organizations.
In a large scale or catastrophic disaster, the Mayor and Emergency Management
Coordinator may appoint a Disaster Coordination Taskforce Leader to convene such
a taskforce to coordinate both governmental and non-governmental donations and
volunteer management.
Coordination
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The Donations Specialist and Volunteer Agency Liaison will work out of and
communicate from the City Emergency Operations Center (EOC) to liaise with NGOs,
CBOs, FBOs, and VOAD.
Each volunteer group assisting in the disaster will designate a specific individual with
authority to accept task assignments and coordinate its activities with the Donations
Specialist and Volunteer Agency Liaison.
Lines of Succession
The following positions will have a line of succession to ensure volunteer and
donation management functions are sustained.
Donations Specialist:
• Purchasing Manager
• Contract Coordinator
• Buyer
Volunteer Agency Liaison:
• Community Engagement Specialist
• Designee by Director of Parks and Recreation
Emergency Management Coordinator:
• Deputy Emergency Management Coordinator
• Fire Chief
• Designee assigned by the City Manager or Fire Chief and approved by Mayor.
Readiness Levels
Level 4 – Normal Conditions
• Baytown Office of Emergency Management (OEM) will maintain a Community
Emergency Response Team (CERT) volunteer training program in
collaboration with Harris County and coordinate with the Harris County
Citizen Corps.
• Baytown Office of Emergency Management (OEM) will maintain a Citizen
Preparedness Academy to train local volunteers on disaster relief operations.
• The City of Baytown will maintain a partnership with the United Way of
Greater Baytown Area and Chambers County, the BACC-DR Long-Term
Recovery Group, and other local non-profits with volunteers willing to assist
during or after a disaster.
Level 3 – Increased Readiness
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• Monitor the situation and inform key Volunteer and Donation Management
personnel of the potential for activating all or portions of the Volunteer and
Donations Management system.
• Review donation management procedures for currency.
• Check with all NGOs with an assigned responsibility to ensure that they are
ready and able to activate and mobilize.
Level 2 – High Readiness
• Continue to monitor the situation.
• Alert key Volunteer and Donations Management staff for potential operations.
• Ensure that emergency contact lists for NGOs are up-to-date.
• Check potential donations facilities for accessibility and availability.
Level 1 – Maximum Readiness
• Continue to monitor the situation.
• Activate key Volunteer and Donations Management staff to update planning.
• Make tentative Volunteer and Donations Management facility selections.
• Review equipment and supply status and alert providers of possible need.
• Alert NGOs of possible or potential activation.
Information Collection, Analysis, and Dissemination
Information collection, analysis and dissemination is the primary responsibility of
the Baytown Office of Emergency Management (OEM) regarding emergency
management and homeland security matters on a daily basis. However, this
function can be fulfilled by other city departments with appropriate subject matter
expertise (SMEs), such as public health related issues. This function is also
supported by the Public Information Officer (PIO) and Liaison Officer (LNO) when
serving in the Baytown Emergency Operations Center (EOC).
The primary objective of Baytown EOC is the timely gathering of accurate,
accessible, and consistent information during an emergency and sharing vetted
intelligence to ensure coordinated timely response, recovery, prevention,
protection, and mitigation. Display boards and other technologies for tracking
emergency activities will be utilized in the EOC.
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During EOC operations, the Planning Section Chief (PSC) and Situation Unit Leader
(SITUL) are primarily responsible for information collection, analysis and
dissemination of incident-specific information with the compilation of the EOC
Situation Report (SITREP) and position updates on WebEOC and other information
sharing platforms. The PIO and LNO assist the Planning Section in maintaining
situational awareness and a common operating picture.
Volunteer and Donations Management staff shall provide a daily report of their
activities to the Donations Specialist and Volunteer Agency Liaison. Such reports
may include the following information:
Finance/Administration Section Chief:
• Cash received
• Cash distributed
• Major issues or challenges
Donations Staging Area:
• Number and type of bulk donations received (truckloads, pallets, etc.)
• Significant donations and disposition
• Goods delivered to distribution sites (truckload, pallets, boxes)
• Unneeded goods delivered to other agencies
• Current hours of operation
• Number of persons employed (volunteers and paid workers)
• Major operational activities
• Support activities (feeding, lodging, etc.)
• Major issues or challenges
Donations Distribution Sites:
• Number of customers served
• Hours of operation
• Number of workers (volunteers and paid workers)
• Major issues or challenges
Volunteer Reception Center:
• Hours of operation
• Number of volunteers assigned to tasks
• Number of workers within the facility
• General types of jobs to which workers have been dispatched
• Support activities (feeding, etc.)
• Major issues or challenges
Personnel operating in the Baytown EOC will maintain an Incident Position Log and
provide status updates upon request to ensure situational awareness and a
common operating picture.
The Baytown EOC Standard Operating Guide (SOG) maintains a list of available
trusted and verified authoritative resources that can be used to collect and analysis
information and data. Information flow consist of all levels of government, private-
sector, and non-profits organizations sharing information. The Liaison Officer and
EMC will coordinate with external organizations to collect and share information.
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The EMC and IC will determine Critical Information Requirements (CIRs) and
Essential Elements of Information (EEIs) with a reporting deadline, which will be
outlined in the Incident Action Plan (IAP).
The Baytown IT Services Department, Public Works and Engineering Department,
and Planning and Development Department maintain employees with GIS mapping
skills that can used to analyze and display critical data and essential elements of
information (EEIs) via dashboards, maps, and storyboards.
Additional details on information collection, analysis, and dissemination can be
found in the following documents: Warning and Alert Annex, Communications
Annex, Emergency Public Information Annex, and the Baytown EOC
Standard Operating Guide.
Administration, Finance, and Logistics
Administration and Finance
Reports and Records
During emergency operations, the Donations Specialist and Volunteer Agency Liaison
shall compile and provide a daily summary of significant donations and volunteer
management activities to the Incident Commander for use in staff briefings, Planning
meetings, and inclusion in Situation Reports (see ESF 5).
If the EOC has been deactivated, a periodic summary of activities will be provided to
the Emergency Management Coordinator and the heads of NGOs participating in the
recovery process.
Each volunteer and donations facility will maintain an Activity Log at that facility,
location including activation and deactivation, arrivals and departure of staff, receipt
of or return of major equipment, and the commitment of people, equipment, or
materials to specific tasks.
The Donations Specialist and Volunteer Agency Liaison shall provide a scribe to
provide a written record of the policies formulated and activities undertaken at
meetings with NGOs and City Staff. Those records shall be maintained by the
Donations Specialist and Volunteer Agency Liaison.
Cost Documentation
All City departments shall maintain records of personnel and equipment used and
supplies consumed during donations management operations. While expenses
incurred in operating the donations and volunteer management system are generally
not recoverable. However, in the event state and/or federal reimbursement is
considered, accurate records would need to be provided.
Volunteer hours help communities recover in two ways:
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• Volunteer work is essential to helping the community respond and recover
physically, emotionally, and spiritually.
• Volunteer hours have a dollar amount attached to them by the Federal
government to aid communities in recovering the cost of relief efforts.
Volunteer hours must be documented in an auditable way in order for hours to count
towards the cost-share. To track volunteer hours document the following:
• Volunteer’s Name - first and last
• Location of Volunteer Work – the specific address of the service site
• Hours Worked – a sign-in time and a sign-out time
• Type of Work – a brief description, i.e.:
o “Donations Management” for loading, unloading and sorting donations
o “Community Feeding” for packaging, cooking, serving, or distributing
food to residents or volunteers
It is also beneficial to note if the volunteer used any equipment, since some types of
equipment, such as vehicles and miles driven, also have reimbursable dollar amounts
attached.
Logistics
Government resources that may be needed to operate the volunteer and donations
management systems are listed in the Logistics and Resource Management
Annex (ESF -7).
Plan Development and Maintenance
The Emergency Management Coordinator in collaboration with the Purchasing
division and Community Engagement division is responsible for developing and
maintaining this support annex.
This annex will be reviewed annually and updated every 5-years in accordance with
the schedule outlined in the Basic Plan and Emergency Planning Standard
Operating Guide (SOG).
Individuals, departments, agencies, and volunteer organizations assigned
responsibilities in this support annex are responsible for developing and maintaining
appropriate standard operating procedures (SOPs) to carry out those
responsibilities.
Training and Exercises
The training and exercises developed for this annex will be included in the city’s
Integrated Preparedness Plan (IPP).
Training
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The Baytown OEM will maintain a NIMS Training Policy for all city employees
assigned to the Baytown Emergency Operations Center and offer regularly
scheduled Incident Command System (ICS)/ National Incident Management System
(NIMS) training courses to city employees.
The Donations Specialist and Volunteer Agency Liaison should attend training in
donations and volunteer management. Such training is offered by the Texas
Division of Emergency Management and a number of volunteer groups. The CBOs,
FBOs, NGOs, and VOAD are responsible for providing donations and volunteer
management personnel/volunteers with on-the-job training for individuals who will
be working in a donations or volunteer facility. Baytown OEM will schedule
volunteer and donations management training courses upon request by the Primary
Agency, Support Agencies, or other interested city employees.
Exercises
Local drills, tabletop exercises, functional exercises, and full-scale exercises should
periodically include a Volunteer and Donation Management scenario based on the
anticipated hazards which could be faced by this jurisdiction. An exercise may be
conducted to test this Support Annex and train personnel on the use of this
document. The exercise will include primary and support agencies assigned to this
annex and city employees assigned to the Baytown Emergency Operations Center
(EOC). After the exercise is completed the City shall record the following
information:
• List of participants;
• Lessons learned via an After-Action Report (AAR); and
• Recommendations or changes to this annex via an Improvement Plan (IP).
The plan may be revised based on the exercise recommendations or after a real
incident.
References
• FEMA, Comprehensive Preparedness Guide (CPG) 101 Version 2.0, November
2010
• FEMA, Engaging Faith-Based and Community Organizations, June 2018.
• FEMA, National Response Framework.
• FEMA, Volunteer and Donations Management Support Annex, VOL-6, May
2013
• FEMA, Volunteer and Donations Management Information Overview.
• City of Houston and Harris County, Annex T – Donations Management. June
2021.
• Harris County, Volunteer Reception Center Plan, September 2022.
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• State of Texas Emergency Management Plan, Volunteer and Donations
Management Annex, April 2021.
Appendices and Attachments
• Appendix 1 – Sample Current Donation Needs List
• Appendix 2 – Sample Record of Donation Offer
• Appendix 3 – Sample Public Information Release
• Appendix 4 – Volunteer and Donations Management Operations Guide
• Appendix 5 – City Volunteer Waiver Form
• Appendix 6 – Volunteer Hours Tracking Form
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VDM Support Annex 6 - 29
Appendix 1 – Sample Current Donation Needs List
Current Donations Needs List
Needed
Goods
Services
Not Needed
Goods
Services
Monetary Donations
City of
Baytown
BACC-DR
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Appendix 2 – Sample Record of Donation Offer
RECORD OF DONATION OFFER
Call received by: Date: Time:
Donor Name and Information: Salutation:
First Name: Last Name:
Title: Organization:
Phone 1: Phone 2:
Address 1:
Address 2:
City: State: Zip:
Country:
Donated (free) Goods or Services
Commercial (vendor) Goods or Services
Type of Resource: (e.g., people, food, equipment):
Category: (e.g., clothing, water, bedding):
Sub-category: (e.g., shoes, blankets, chairs): ________________________________________
Description/Notes:
Total Quantity: Units (#): Measure (e.g., box, each): _______________________
Packaging ______________ Amount (#): Size (e.g., can, dozen, gallon): _____________
Palletized: Yes No Transportation required: Yes No
Refrigeration required: Yes No Restrictions: Yes No
Resource Location: ___________________________________________________________________
Estimated Value: Available until: __________________________
Follow-up required: Yes No Action taken:
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Appendix 3 – Sample Public Information Release
(Date)
FOR IMMEDIATE RELEASE
We are receiving resident and community inquiries regarding the [name of
disaster]. The calls primarily involve residents who want to help or make donations
to the [name of disaster] survivors. It is important that such good intentions do not
create the potential for a disaster within a disaster. Therefore, people who wish to
help should do so in as effective a manner as possible.
Individuals or organizations that want to aid survivors of [name of disaster]
should first work through their local disaster relief organizations. These may include
United Way of Greater Baytown Area and Chambers County, the American Red Cross,
The Salvation Army, the Texas Baptist Men, the Adventist Community Services, the
Houston Food Bank, Hearts and Hands of Baytown, or the Love Network of Baytown,
etc.
Cash is the best contribution since items can be purchased within the affected
areas to meet the specific needs of disaster survivors. To contribute cash,
contributions should be sent to United Way Baytown Area and Chambers County –
Disaster Recovery (BACC-DR) Crisis Fund at https://www.unitedwaygbacc.org/give.
If people prefer to donate goods or service, they should still work through their
local disaster relief organizations. These organizations know the immediate needs of
people in the affected areas, how best to meet those needs, and how to ensure
assistance is appropriate, adequate, and delivered to the right places. The disaster
relief organizations can tell potential donors what is needed and what is not needed
and how to package and transport those goods that are needed to the disaster area.
We encourage people not to send unsolicited donations to the disaster area.
Unsolicited donations may not reach the proper people or even would meet their
current needs. If donors plan to travel to the disaster area, they may find that lodging
and other services are unavailable and they may add to problems in the disaster area
rather than helping.
Attention Media: Please assist us in publicizing this information relating to
donations for the [name of disaster]. We would like to encourage donations of goods
and services that are needed, while discouraging donations that cannot be used and
that may add to the problems that already exist. You can also help us by discouraging
sightseers from driving into the disaster area.
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Appendix 4 – Volunteer and Donations Management
Operations Guide
This Guide is intended to provide information on Volunteer and Donations
Management personnel and facilities and operating guidance for the Volunteer and
Donations Management Program. The Guide is Appendix 4 to the Volunteer and
Donations Management Support Annex, but is published separately because it
contains names, contact information, and facility data that change frequently.
In the pre-emergency phase, the Guide should be at least partially completed to
provide contact information for the Volunteer and Donations Steering Group and
other key donations personnel, to describe the functions to be performed by
donations management operating units, to outline facility and equipment
requirements for each unit, identify candidate facilities, and to describe the general
operating process at each facility. In this phase, a Donations Coordinator should be
appointed (include appointment letter in Tab A to this Guide) and Volunteer and
Donations Steering Group members and key donations management personnel
identified (complete Tabs B and C to this Guide). The Guide may be further developed
during the pre-emergency phase; the Donations Specialist should maintain it with
the assistance of the Volunteer and Donations Steering Group. Copies will be
provided to members of the Volunteer and Donations Steering Group, key volunteer
and donations management personnel, and the Emergency Management
Coordinator.
When a disaster occurs, the Guide will be updated to identify specific facilities to be
used in the donations management effort. Tabs D through I should be completed
during this phase. It is anticipated that the Guide will have to be regularly updated
during the recovery phase to keep it current. Copies of the Guide will be distributed
to the Emergency Management Coordinator, and other local officials as well as those
volunteer groups supporting local donations management operations.
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DONATIONS COORDINATION TASKFORCE LEADER
SAMPLE LETTER OF APPOINTMENT
Effective this date, I have appointed _____________________________________
as the Donations Coordination Taskforce Leader for the City of Baytown. The
above-designated entity will supervise the entire Volunteer and Donations Program
for the City of Baytown.
The Donations Coordination Taskforce Leader will provide additional guidance,
direction, and supervision to all functions of the Volunteer and Donations Program
which are activated during and after a major emergency or disaster and fall under
the jurisdiction of this City.
The Donations Coordination Taskforce Leader will additionally work closely and
collaborate with the Donations Specialist and Volunteer Agency Liaison all
recognized voluntary agencies in the City that will be helping survivors during and
after a disaster.
This appointment will remain in force until terminated by either party.
________________________________ ______________
Mayor (Date)
________________________________ ______________
Emergency Management Coordinator (Date)
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DONATIONS COORDINATION TASKFORCE
The Donations Coordination Taskforce will be determined by the Donations Specialist
or Donation Coordination Taskforce Leader and may include designated members of
Non-Governmental Organizations (NGOs), Community-Based Organizations (CBOs),
Faith-Based Organizations (FBOs) and the voluntary agencies who would have an
interest in setting policy for and being a part of the donations and volunteer
management program.
The following are typical organizations, donations and volunteer management
personnel, and other officials that should be represented:
• Donations Coordination Taskforce Leader – Directs volunteer and donations
management operations
• Representatives from community-based organizations (CBOs) such as:
o Faith-based organizations
o Local ministerial alliance
o Clubs and organizations having a charitable mission as a part of their
activities (e.g., Scouts, Lions Clubs, Kiwanis, Shriners, Masons, Knights
of Columbus, etc.)
• Representatives from local chapters of national voluntary agencies such as:
o United Way of Greater Baytown Area and Chambers County
o American Red Cross (ARC)
o The Salvation Army (TSA)
o Texas Baptist Men (TBM)
o Adventist Community Services (ACS)
o Area Food Banks (i.e., Houston Food Bank)
o Humane Society
• City Donations Specialist – Coordinates the Donation Management efforts
between volunteer groups and the City of Baytown. The City Purchasing
Coordinator is assigned as City Donations Specialist.
• City Volunteer Agency Liaison – Assists with coordination of volunteer
management efforts between volunteer groups and the City of Baytown. The
City’s Community Engagement Manager is assigned as City Volunteer Agency
Liaison.
• City Finance/Administration Section Chief – Assists the Donations Specialist in
the management of donations of materials or money to the City.
• Logistics Section Chief – Assists the Donations Specialist in the management
of materials by providing for volunteer and donations facilities and resources.
• Public Information Officer – Works closely with the Donations Specialist to
share information to the public and media.
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UNMET NEEDS
The City of Baytown is not a community welfare agency and has no operational or
administrative assets with which to provide social services assistance to the
community. Such individuals are directed to the United Way of Greater Baytown Area
and Chambers County or other Non-Government Agency.
During the recovery process, after all the disaster relief organizations and the state
and/or federal government have provided monetary and other assistance to the
disaster survivors, there will still be those individuals and families who, for various
reasons, need additional help in recovering from a disaster. The United Way of
Greater Baytown Area and Chambers County, the American Red Cross, the Salvation
Army, Harris County Precinct 2 at 701 Baker St., Baytown, and the Baytown
Ministerial Alliance may have resources and expertise in matching unmet needs to
resources. The Baytown and Chamber County Disaster Recovery (BACCDR) may be
activated as the Long-Term Recovery Group (LTRG). The Baytown Planning and
Development Department will coordinate with BACC-DR to evaluate unmet needs in
the Baytown community. See the Recovery Support Annex for more detailed
information on short and long-term recovery.
In the aftermath of a disaster, FEMA outreach efforts will be centered in and around
Baytown including the establishment of a Disaster Assistance Center (DAC).
Residents will be routed to that location for assistance with emergency living and
housing needs, as well as FEMA and Small Business Administration (SBA) Disaster
Assistance
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DONATIONS OPERATIONS OFFICE
Purpose
If needed, a Donations Operations Office may be established to operate the
Baytown’s Donations Management program/system. The Donations Operations Office
coordinates and collaborates with the volunteer agencies to set policy and establish
donations management procedures. The Donations Operations Office acts as the
liaison between the City of Baytown Emergency Operations Center (EOC) and the
donations management operational entities/functions.
Facilities and Equipment
The Donations Operations Office should operate in a facility that is located, if at all
possible, in proximity to the disaster area. Typical equipment in the Donations
Operations Office would be:
• Sufficient desks, tables, and chairs for staff personnel
• A large conference room
• Copier and facsimile machine
• Sufficient phones for personnel
• Computers (with Internet access) and printer
• Break area with microwave, refrigerator, and sink
Staffing
Donations Operations Office Staffing is determined by the Donations Coordination
Taskforce Leader or Donations Specialist.
• Donations Operations Office Supervisor
• Donations Operations Office Staff
Operations
The Donations Operations Office should accomplish the following:
• Select which donations management facilities/functions will operate
• Work closely with local government officials on disaster-related activities
• Facilitate regular meetings with volunteer organizations
• Provide operational policy for the operational donations management facilities
• Coordinate with the City EOC to assess donations needed/not needed, and to
obtain the latest disaster-related information for relay to callers
• Coordinate with the volunteer agencies to determine updated referral numbers
and other key information
• Work with the PIO to prepare public service announcements and media pleas
• Perform as the webmaster for the disaster web site, if one is established
• Maintain updated records on all donations (e.g., cash, goods, and volunteers)
• Operate as the initial Phone Bank if one is needed
• Assist in coordinating transportation issues with the Donations Staging Area
and Distribution Sites
• Prepare “letters of thanks” as appropriate
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DONATIONS STAGING AREA (DSA)
Purpose
A Donations Staging Area (DSA) is established to receive, sort, organize, repackage
if necessary, and temporarily store donated goods and then transport them to
Distribution Sites where survivors can pick them up. A regional DSA area may be
established by the State to serve a group of affected communities. If a regional DSA
area is established, volunteers from those communities that receive goods from the
facility will normally participate in its operation.
Facilities and Equipment
General facility requirements are outlined below. Vacant warehouses and large stores
are frequently used. Donations Staging Areas is determined by the Volunteer and
Donations Coordinator.
• Sufficient space (50,000-100,000 square feet) with hard flooring (for
forklifts)
• Several loading docks
• Heated/cooled storage and work areas and some type of office space
• Refrigerated area for selected foods and medicines
• Large, paved parking lot for numerous commercial trucks to maneuver and
park
• Adequate power
• Security fencing with entry point and perimeter lighting
General equipment/supply requirements are:
• Phone service
• Adequate lighting for work areas
• Sufficient desks and chairs
• Long (raised to chest-height) tables for sorting and packaging incoming
goods
• Packaging materials (e.g., special cartons, binding tape, shrink-wrap, steel
bands with binder, etc.)
• Drinking water and restrooms
• Computers (with Internet access) and printer/copier
• Pallet jacks
• Forklifts (electric or natural gas if used inside closed building)
• Medium-sized (bread) trucks with an elevator lift if possible, for transporting
goods from the RSA to distribution facilities
• Designated area/location for fueling distribution trucks (e.g., government
facility)
Note: If volunteer workers will be living at the facility, then showers, a food
preparation/dining area, and a separate sleeping area are desirable.
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 38
Staffing
Donations Staging Area Staff is determined by the Volunteer and Donations
Coordinator
• Equipment Unit Manager
• Phone Line/Equipment Unit Manager
• Transportation Unit Manager
• Security Unit Manager
• Support Unit Manager
3. Operations
Pre-emergency Phase:
• Identify facilities in the local area that could serve as an DSA.
• Keep current telephone numbers of the lessors/realtors/owners that could
provide the status of applicable facilities.
• Develop a method for determining the availability status of a potential facility
in the event a disaster has occurred or is occurring.
Set-Up:
• Locate an available facility and obtain authority/permission for its use.
• Equip the facility (basic requirements are outlined above).
Develop guidelines for:
• Obtaining and recording costs for fuel used in distribution trucks
• Ensuring proper certifications for drivers of all DSA–associated trucks
• Ensuring proper training of forklift operators
• Recording the receipt, storage, and distribution/disposition of donated goods
• Training, maintaining the status of, and assigning jobs to volunteer workers
If needed, a local jurisdiction may submit a State of Texas Assistance Request
(STAR) for warehouse support by the state and/or voluntary organizations. The
Texas Division of Emergency Management (TDEM) will coordinate with Texas
Voluntary Organizations Active in Disaster (VOAD) to set up and support a Multi-
Agency Warehouse (MAW).
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 39
PHONE BANK
Purpose
To provide the capability to handle a large number of phone calls during and after a
disaster from donors and other persons.
Donations related calls can generally be classed into four types:
• Donors providing a donation, starting a “drive,” or wanting to know how best
to donate
• Vendors wanting to provide services or materials at a reduced cost to the
disaster survivors
• Drivers, enroute to the disaster area, desiring to know where they should
deliver their cargo, who will off-load it, etc.
• Persons, including disaster survivors, seeking disaster-related information
Operations
The Phone Bank is an operational part of the EOC and is activated as part of the
overall Basic Emergency Operations Plan. There is not a plan to establish a separate
phone bank for donations.
Phone calls with offers of donations will have the following information recorded:
• Caller name, address, and contact number
• Specific nature of the donation: what, how many, condition, etc.
• Where the item(s) is located
• If item is being delivered or requires pick up
• Confirm caller name and call back number
That information will be provided to the Donations Coordination Taskforce Leader.
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 40
DONATED GOODS DISTRIBUTION SITES
Purpose
Distribution Sites are locations where disaster survivors pick up donated goods,
materials, and supplies, etc. after a disaster strikes.
The Donations Coordination Taskforce Leader (or designee) should work closely with
the applicable voluntary agencies to determine where exactly these distribution sites
will be.
In the event that a distribution site is not established, then the City of Baytown will
need to establish one to distribute any goods received.
Facilities, Equipment, and Supplies
Distribution site locations are determined by the Volunteer and Donations Coordinator
Staffing
These facilities are generally operated by either local community-based
organizations, faith-based organizations, or nationally-recognized voluntary
organizations and agencies. These voluntary organizations will initially use their own
trained personnel for distribution operations and solicit volunteers from the
community and other sources to assist as needed.
Operations
Since local distribution operations are conducted by the volunteer agencies, the
procedures for such operations would be the ones already used by the particular
agency operating the distribution point (e.g., United Way of Greater Baytown Area
and Chambers County, The Salvation Army, the American Red Cross, the Adventist
Community Services, etc.).
The Adventist Community Services has special expertise in managing, handling,
sorting, storing, and distributing large volumes of donated goods, especially those
that may not have been requested. Coordination with that agency for assistance is
encouraged.
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 41
VOLUNTEER RECEPTION CENTER
Purpose
The Volunteer Reception Center (VRC) is a facility where spontaneous, emergent, or
unaffiliated volunteers are assembled, vetted, and assignments coordinated through
the Baytown EOC to perform tasks to assist the disaster survivors or the community
as a whole.
The Volunteer Reception Center performs several functions, including:
• Task Identification – Determining exactly what needs to be done and the types
of individuals and services needed to do the job.
• Registration – Identifying volunteers and checking their background, skills,
credentials, and providing appropriate identification badges.
• Dispatch – Matching jobs with skills and directing volunteers where to go be
assigned task(s).
• Communications – Working between the Volunteer Reception Center and the
Baytown EOC to ensure volunteers are being used effectively.
• Support – Established to provide food, water, lodging, transportation, first aid,
and appropriate tools (shovels, chainsaws, gloves, back braces, etc.) to assist
volunteer disaster workers.
Facilities and Equipment
Pre-Emergency Planning
• Determine potential locations for the Center (civic center, churches, and
recreation centers). If possible, the facility should have:
o An office area
o A kitchen, dining area, and restroom facilities
o A sufficient parking area for large numbers of people arriving in cars, vans,
trucks, buses, etc.
• Plan in advance to use suitable facilities.
• Identify nearby sources of potential volunteer workers.
Staffing
• Site Manager
• Alternate Site Manager
• Dispatch Unit Manager
• Equipment Unit Manager
• Support Unit Manager
Operations
Facility Set-Up. Obtain the following in the event the Volunteer Reception Center is
activated:
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 42
• Sufficient phone lines and phone instruments to conduct volunteer operations,
and sufficient furniture, desks, chairs, etc. to accommodate F”
• Copier and fax machine
• Computers (with Internet access) and appropriate printer
• Capability to produce security access badges
• Tools with appropriate markings to preclude theft
• Vehicles (vans, buses, etc.) to transport volunteer workers to and from the
Volunteer Reception Center and the work sites
• Temporary floor coverings (plastic, etc.) for protecting the high traffic areas
in the event the Volunteer Reception Center is located in a special-use
building (e.g., church, etc.)
Facility Operation
An Administrative function to in-process volunteer workers; to determine their job
interests, skills, and certifications; to issue security badges; etc.
A Dispatch function to catalog what jobs exist, to match the volunteer workers with
the appropriate tasks to be accomplished, and to issue appropriate tools for the job
(e.g., gloves, saws, brooms, rakes, shovels, etc.)
Volunteer Resource Allocation - When disasters occur, volunteers may arrive at
incident sites to provide assistance. Local communities may become responsible for
determining how to manage volunteers. Trained volunteers may assist local
emergency management personnel and first responders with managing spontaneous,
unaffiliated volunteers.
Spontaneous and unaffiliated volunteers may be referred to local Volunteer Reception
Centers or to nonprofit organizations that may have the ability to utilize spontaneous
unaffiliated volunteers. United Way of Greater Baytown Area and Chambers County
maintains a volunteer registry. Spontaneous, unaffiliated volunteers may be used to
complete homeowner work orders, assist in the operations of volunteer reception
centers and to support donations centers. Following the immediate response phase
volunteers and VRCs are transitioned to more coordinated and scheduled systems
that are established by local coordinating organizations.
Homeowner Work Orders - Homeowners can submit work order requests through
VRCs. Work orders are then assigned to volunteer organizations and to designated
VRC management teams. VRC management teams send their own representatives
as strike team leaders for groups of spontaneous, unaffiliated volunteers to complete
requested work, as long as within the scope of a given group’s capabilities.
Example of Work Orders:
• Muck-outs - Removal, clean, or recovery needs such as community clean up,
debris removal, home gutting, environmental restoration (rebuilding sand
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 43
dunes, fencing, and planting grass), general labor tasks, and general
operations, etc.
• Expedient Roof Repair - Placing tarps on roofs for temporary coverage
• Debris Removal - Clearing debris from private property
• Debris Sorting - Sorting debris according to FEMA guidelines placing sorted
debris in pickup locations
A Support function to provide meals, drinks, etc. for the workers both at the Volunteer
Reception Center and their workplaces
FOR OFFICIAL USE ONLY (FOUO)
HANDLING CASH DONATIONS
Cash donations are frequently the best type of donation since the money received
can easily be used by the recipient organization to assist disaster survivors in
purchasing goods and clothing, obtaining transportation, repairing their home, etc.
Donors should be encouraged to contribute cash, not to the City of Baytown, but
rather to the local community-based organizations or the voluntary disaster relief
agencies (e.g., United Way of Greater Baytown Area and Chambers County, the
American Red Cross (ARC), The Salvation Army (TSA), Adventist Community Services
(ACS), Food Banks, Texas Baptist Men, United Methodist Committee on Relief
(UMCOR), St. Vincent de Paul Society, and others).
Cash donations should generally not be accepted by the City of Baytown since the
management of donated disaster funds by the government often turns to be a “lose-
lose” proposition in that the disbursal of these funds can rarely, if ever, be carried
out in an equitable manner that is sufficient to satisfy all the recipients and non-
recipients.
If, however, unsolicited funds are received and accepted (i.e., not returned) by the
City of Baytown, then the subsequent steps should be followed:
• A separate bank account with an appropriate account number should be
established.
• Persons, corporations, organizations, etc. wishing to donate cash should know
exactly who to make the check-out to, the appropriate address to which the
check should be sent, and any other information needing to be written on the
check to validate and enhance its processing.
• The same applies to other forms of donated securities such as stocks, bonds,
etc.
• Procedures should be written to clearly show:
o How the account will be managed.
o Who will establish and maintain the account.
o Under what authority.
o Who will give the approval to the bank account managers for disbursal.
o What will be the exact process used to authorize disbursal.
o By what method is the payment made (two-party check, etc.).
The person(s) authorized to disburse the funds should be a neutral party and not
associated with the recipients, the government, or any other person or entity that
could prejudice the disbursement of monies or otherwise indicate impropriety.
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 45
Appendix 5 – City Volunteer Information and Forms
City Volunteer Website
The City of Baytown maintain a volunteer website with volunteer opportunities and
information at www.baytonw.org/serve.
City Volunteer Registration
City volunteers must register using the following city site:
https://share.vomevolunteer.com/4Vl3P7L6sXb
City Volunteer Waiver Forms
The City of Baytown maintains an Adult Volunteer Waiver and Minor Volunteer
Waiver online form that must be signed and completed by any individual
volunteering on behalf of the City of Baytown. A link to these forms can be found at
https://baytown.org/1405/Volunteer-Waivers
FOR OFFICIAL USE ONLY (FOUO)
VDM Support Annex 6 - 46
Appendix 6 – Volunteer Hours Tracking Form
Personal Information
First Name:
Last Name:
Email:
Cell Phone:
Organization/Affiliation:
Volunteer Work Location
Facility / Point of
Interest:
Address:
City:
County:
Zip Code:
Hours Worked / Work Performed
Total Hours Worked:
Type of Work
Performed:
Type of Equipment
Used:
Total Hours Equipment
Used:
Type of Vehicle Used:
Total Hours Equipment
Used:
Signature:
CITY OF BAYTOWN
Disaster Finance and
Cost Recovery
Appendix
BAYTOWN FIRE DEPARTMENT
OFFICE OF EMERGENCY MANAGEMENT
July 2025
1
Record of Changes
CHANGE # DATE OF
CHANGE DESCRIPTION CHANGED BY
2
Table of Contents
Record of Changes ........................................................................................................................................ 1
Approval and Implementation ...................................................................................................................... 4
Purpose .......................................................................................................................................................... 5
Scope ............................................................................................................................................................. 5
Organization .................................................................................................................................................. 5
EOC Finance and Administration Section ................................................................................................ 5
Disaster Finance Taskforce ....................................................................................................................... 6
Concept of Operations .................................................................................................................................. 6
General ...................................................................................................................................................... 6
Federal Disaster Assistance ...................................................................................................................... 7
FEMA Public Assistance ...................................................................................................................... 7
FHWA Emergency Relief Program ...................................................................................................... 8
HUD Community Development Block Grant – Disaster Recovery and Mitigation ............................. 8
Mutual Aid Assistance .............................................................................................................................. 9
Interlocal Mutual Aid ............................................................................................................................ 9
State Mutual Aid ................................................................................................................................... 9
TIFMAS Mutual Aid .......................................................................................................................... 10
Damage Assessment ............................................................................................................................... 10
Cost Tracking Activities ......................................................................................................................... 11
Disaster Accounting ............................................................................................................................ 11
Insurance ............................................................................................................................................. 11
Labor and Time Keeping .................................................................................................................... 11
Equipment ........................................................................................................................................... 12
Materials and Supplies ........................................................................................................................ 12
Contracts and Leases ........................................................................................................................... 13
Donated and Volunteer Resources ...................................................................................................... 13
Disaster Grant Application ..................................................................................................................... 14
Disaster Funds Management ................................................................................................................... 15
Fund Acceptance Procedures .............................................................................................................. 15
Funds Management Procedures .......................................................................................................... 16
Closeout and Audit ................................................................................................................................. 18
Roles and Responsibilities .......................................................................................................................... 18
Development and Maintenance ................................................................................................................... 21
3
Development ........................................................................................................................................... 21
Maintenance ............................................................................................................................................ 21
Training, Exercise, and After-Action Reports ........................................................................................ 21
Training and Exercises ........................................................................................................................ 21
After Action Reports ........................................................................................................................... 22
Authorities and References ......................................................................................................................... 22
Authority ................................................................................................................................................. 22
References ............................................................................................................................................... 22
ATTACHMENTS ....................................................................................................................................... 22
Attachment 1 – Local Disaster Cost Recovery Forms ............................................................................ 24
Attachment 2 – FEMA Disaster Cost Recovery Forms .......................................................................... 31
Attachment 3 – FHWA Disaster Cost Recovery Forms ......................................................................... 32
Attachment 4 – Baytown Disaster Finance and Cost Recovery Process ................................................ 33
Attachment 5 – FEMA Public Assistance Delivery Model .................................................................... 34
Attachment 6 – Sample DFCR Email Notifications to City Employees................................................. 35
4
Approval and Implementation
City of Baytown, Texas
Disaster Finance and Cost Recovery Appendix
This appendix is hereby approved for implementation and supersedes all
previous editions.
___________________________ ___________________________
Teresa McKenzie, CGFO, CPFIM Date
Director of Finance
David Alamia, MPA, CEM Date
Emergency Management Coordinator
07/26/25
07/26/2025
5
Purpose
The Disaster Finance and Cost Recovery Appendix is intended to provide guidance
and tools to support financial recovery after a major disaster in the City of
Baytown. This document functions as an Appendix to the City of Baytown, Recovery
Support Annex. The purpose of this appendix is to guide and assist the City of
Baytown with the financial reimbursement and cost recovery process by leveraging
and maximizing the funding resources, programs, and opportunities available post-
disaster in order to return the City back to a normal-steady state. This document
outlines the process for emergency expenditures, accounting functions, and disaster
funds management including maintaining an audit trail, billing, paying invoices, and
documenting labor, materials, and services used during the incident activities as
well as providing record keeping and facilitating cost reimbursements upon to
maximize the ability to recovery financially.
Scope
This appendix provides guidance related to disaster finance and cost recovery
efforts for major disasters which are anticipated to receive a Presidential Disaster
Declaration per the Stafford Act.
This document applies to the City of Baytown, City Departments, and City
Employees coordinating disaster finance and cost recovery activities. This document
works in tandem with the City of Baytown’s Basic Plan and Annexes and serves as
an Appendix to the Recovery Support Annex.
Organization
EOC Finance and Administration Section
During major declared disasters, the Baytown Emergency Operation Center (EOC)
will activate the Finance and Administration Section; which has primary
responsibility for all financial, administrative, and cost analysis aspects of the
incident.
The EOC Finance and Administration Section provides reports and information on
burn rates, expenditure limits and ceilings, projections, timekeeping, claims, and
compensation.
For most incidents, the EOC Finance and Administration Section will primarily be
staffed by the Finance and Administration Section Chief ICS-position; which will be
the Finance Director or Assistant Director of Finance serving in this capacity. If
required, the EOC Finance and Administration Section Chief can activate the
following ICS-positions and identify staffing based on the complexity of the incident
as needed: Time Unit, Procurement Unit, Cost Unit, or a Compensation/Claims Unit
6
managed by HR Risk Management for insurance and worker’s compensation
insurance.
The EOC Finance and Administration Section creates the foundation for future
disaster finance and cost recovery efforts by accurately documenting all financial
aspects of the incident.
EOC Finance and Administration Section Figure
Disaster Finance Taskforce
Upon demobilization of the Baytown EOC, the tasks assigned to the Finance and
Administration Section will be delegated to the Disaster Finance Taskforce, if
established. The Disaster Finance Taskforce is established at the direction of the
City Manager. The Disaster Finance Taskforce is a multi-disciplinary team of city
employees with subject-matter expertise in disaster finance and disaster cost
recovery activities.
The Taskforce is responsible for managing funds from various disaster recovery
programs and seeking reimbursement pertaining to damages, losses, and expenses
resulting from a major disaster.
The Taskforce shall be comprised of city employees from the following City
Departments:
• City Manager’s Office
• Finance Department
• Human Resources Department
• Legal Department
• Baytown Office of Emergency Management
Concept of Operations
General
Depending on the type of incident and disaster declaration, the City of Baytown will
submit reimbursement documentation to one or all of the following: Insurance,
Responsible Party (RP), Mutual Aid Assistance entity, Texas Forest Service (TFS),
7
Texas Division of Emergency Management (TDEM), Texas General Land Office
(GLO), Federal Emergency Management Agency (FEMA), U.S. Housing and Urban
Development (HUD), and the Federal Highway Administration (FHWA), or any other
Federal and State agencies providing disaster assistance for municipalities.
Federal Disaster Assistance
FEMA Public Assistance
The Public Assistance (PA) program provides funding for emergency assistance to
save lives and protect property, and assists with funding for permanently restoring
community infrastructure affected by a federally declared disaster.
The PA Program provides supplemental Federal grant assistance for debris removal,
emergency protective measures, and the restoration of disaster-damaged, publicly
owned facilities and specific facilities of certain PNP organizations. The PA Program
also encourages protection of these damaged facilities from future incidents by
providing assistance for hazard mitigation measures.
Project Categories:
FEMA processes PA grant funding according to the type of work the applicant
undertakes. Eligible work is classified into the following categories:
Emergency Work
• Category A: Debris removal
• Category B: Emergency protective measures
Permanent Work
• Category C: Roads and bridges
• Category D: Water control facilities
• Category E: Public buildings and contents
• Category F: Public utilities
• Category G: Parks, recreational, and other facilities
Large Projects:
Projects above a certain amount are considered “large.” The threshold corresponds
to the annually adjusted small project maximum.
• Alternative Procedures (428): For large permanent work projects using
Section 428 PA Alternative Procedures, funding is made on the basis of a
fixed-cost estimate agreed upon by the applicant, recipient and FEMA. PA
funding is based on the estimated amount to restore the damaged facility to
its pre-disaster design and function, including applicable and federally
required codes and standards, and any identified eligible hazard mitigation
measures. Once agreement on the fixed amount is made, the funding will not
be adjusted. Applicants have the flexibility to use the funding to meet the
post-disaster recovery needs, and not just build back what they had before.
8
The applicant may also retain any excess funds for use on certain eligible
activities.
• Standard Procedures (406): For large permanent work projects using the
standard Section 406 process, funding is provided on the basis of actual
costs as determined after the project is completed. The applicant’s flexibility
in use of the funding is limited, and they do not have the ability to retain
excess funds.
Small Projects:
Projects falling below a certain threshold are considered "small." The threshold is
adjusted annually for inflation. For Fiscal Year 2020, that threshold is $131,100. For
small projects, final funding is based on the estimate at the time of project approval
and certification of project completion is required when the project is done. The
minimum amount that can be approved for any Project Worksheet under the PA
Program for FY 2020 is $3,300.
FHWA Emergency Relief Program
Federal Highway Administration’s (FHWA) Emergency Relief program, provides
funds for emergency and permanent repairs on Federal-aid highways and roads,
tribal transportation facilities, and roads on Federal lands that the Department finds
have suffered serious damage because of natural disasters or catastrophic failure
from an external cause. The ER funds can be used for emergency repairs and
permanent repairs.
The City of Baytown applies for FHWA ER funding through TXDOT and not FHWA
directly. The Baytown Public Works and Engineering and Finance Department will
ensure all federal aid requirements are met for projects to be eligible for
reimbursement from the FHWA-ER Program.
Emergency Repairs
Occur immediately following a disaster to restore essential traffic, minimize damage
or protect remaining facilities:
• Establishing emergency detours;
• Providing temporary bridges or ferry service
• Roadway regrading.
Permanent Repairs
Restore the highway to pre-disaster condition:
• Restoring pavement surfaces;
• Reconstructing damaged bridges and culverts;
• Replacing signs, guardrail, fences, and other highway devices.
HUD Community Development Block Grant – Disaster Recovery and Mitigation
HUD provides flexible grants to help cities, counties, and States recover from
Presidentially declared disasters, especially in low-income areas, subject to
9
availability of supplemental appropriations. In response to Presidentially declared
disasters, Congress may appropriate additional funding for the Community
Development Block Grant (CDBG) Program as Disaster Recovery grants to rebuild
the affected areas and provide crucial seed money to start the recovery process.
Eligible activities include housing recovery, infrastructure restoration, and economic
development.
Congress also may establish a CDBG-MIT (Mitigation grant program which funds
mitigation activities that increase resilience to disasters and eliminate the long-term
risk of loss of life, injury, damage to and loss of property, and suffering and
hardship by lessening the impact of future disasters.
Mutual Aid Assistance
When mutual aid agreements are in place, the providing entity may be reimbursed
through the requesting entity. The requesting entity should claim the eligible costs
of the providing entity and agree to disburse the Federal share of funds to the
providing entity.
• "Requesting local government entity" means a local government entity
requesting mutual aid assistance under the system.
• "Responding local government entity" means a local government entity
providing mutual aid assistance in response to a request under the system.
Interlocal Mutual Aid
City of Baytown maintains several Mutual Aid Agreements (MAA) between local fire
departments, police agencies, and other first response organizations.
Mutual Aid Assistance (MAA) is assistance that is dispatched or deployed, upon
request, by the local authority having jurisdiction.
This does not include Automatic Aid, which is assistance that is automatically
dispatched or deployed by a contractual agreement between the City of Baytown
and another authority having jurisdiction.
State Mutual Aid
The Texas Statewide Mutual Aid System provides integrated statewide mutual aid
between local government entities without a written mutual aid agreement.
A request for mutual aid assistance between local government entities is considered
to be made under the system, unless the requesting and responding entities are
parties to a written mutual aid agreement in effect when the request is made.
10
If a local government entity requests mutual aid assistance from another local
government entity under the system that requires a response that exceeds 12
consecutive hours, the requesting local government entity shall reimburse the
actual costs of providing mutual aid assistance to the responding local government
entity, including costs for personnel, operation and maintenance of equipment,
damaged equipment, food, lodging, and transportation, incurred by the responding
local government entity in response to a request for reimbursement.
Mutual Aid Assistance requested by the State is processed by the Texas Division of
Emergency Management (TDEM) State Disaster Reimbursement Section (SDRS).
TDEM requires the City of Baytown to submit the In State Mutual Aid
Reimbursement Invoice form which summarizes amounts claimed for Employee
Labor and Backfill, Travel, Equipment, Material, Rented Equipment and Contract
costs.
TIFMAS Mutual Aid
The Texas Intrastate Fire Mutual Aid System (TIFMAS) is maintained by Texas A&M
Forest Service. The program includes grants, training and qualifications and
mobilization systems to make statewide use of local resources.
TIFMAS reimbursement requires the City of Baytown to submit the Texas Standard
Incident Reimbursement Package, which includes:
• Response to provide Personnel for Mutual Aid Invoice form
• Force Account Labor Summary Record (Deployed and Backfill Personnel)
• Force Account Equipment Summary Record (if vehicles, trailers or equipment
• are used)
• Travel Summary Record
• Material Summary Record
• Rented Equipment Summary Record
• Contract Summary Record
• State mission mobilize/demobilize orders
• Contact Information
The Baytown Fire Department serves as the lead agency responsible for submitting
the required documentation for TIFMAS reimbursements.
Damage Assessment
The City of Baytown conducts initial windshield damage assessments in accordance
with the Recovery Support Annex and state/FEMA guidance for assessing
impacts from major disasters.
The Baytown Public Works and Engineering Department and the Baytown Planning
and Development Services Department serve as lead agencies responsible for
conducting damage assessments. PWE assesses damages to public infrastructure
systems and PDS is responsible for damage assessments for commercial and
residential properties.
11
Each City Department is responsible for reporting damages to their respective
facilities to both the Facilities Maintenance Division and Human Resource
Department. Facilities Maintenance assists City Departments with damage
assessments to city facilities. Human Resources collects damage assessment
information on city facilities, assets, and content to process insurance claims.
The initial windshield damage assessments are then utilized to submit the Disaster
Summary Outline (DSO) to the State of Texas as an initial step to securing a
federal disaster declaration and meeting the state and county Public Assistance (PA)
thresholds. Upon a PA declaration, FEMA and TDEM will coordinate with the City of
Baytown to conduct a more thorough Preliminary Damage Assessment to validate
damages reported.
Cost Tracking Activities
It is important for all City of Baytown Departments to track and record who, what,
where, when, why, and the coast related to the disaster. City Departments should
track and record costs related to labor, contracts, equipment, materials, and
property damage to city facilities. For more information on cost tracking, see below.
Disaster Accounting
A Budget Code / Project Code / Cost Center is established by the Finance
Department upon activation of the Baytown EOC during major disasters and
distributed to all City Departments to track disaster-related expenditures associated
with the incident.
All supporting documentation related to any transaction (i.e. work orders, receipts,
invoices, etc.) should be maintained by the department for future reimbursement
efforts, audits, and inquiry. Copies should be provided to the EOC Finance and
Administration Section or the Disaster Finance Taskforce, as appropriate. All
supporting documentation should clearly identify the location, date, and time of the
work done.
Insurance
The Baytown Human Resource Department is responsible for managing the City’s
Risk Management Program and insurance coverage. HR’s Risk Management
Coordinator will coordinate with the Baytown OEM, PWE Facilities Maintenance, and
City Departments to gather and collect damage assessment information for City
Facilities, Equipment, Vehicles, Content, and other assets for insurance claims.
Labor and Time Keeping
FEMA refers to City Employees assigned to the incident as force account labor,
which is based on hourly rates plus the cost of certain fringe benefits. Time and
Compensation is based on pre-disaster city policies and procedures and eligible
12
work under FEMA Public Assistance. Hours claimed for Force Account Labor must be
reasonable and necessary.
The Baytown Finance Department will create a Project # and Budget # in
ExecuTime for major disasters. All City Employees assigned tasks during the
disaster should utilize these ExecuTime codes for time tracking. All City Employees
are required to track Regular Time and Overtime. In addition, City Departments
should maintain a Disaster Operations Time and Activity Log or City Works Reports
to provide adequate documentation for assigned tasks related to the disaster.
City Departments are required to maintain appropriate documentation for Hours
Worked, Work Location, and Type of Work Performed.
The following documentation is required from City Departments:
• Disaster Operations Time and Activity Log or City Works Reports
• ExecuTime Timesheet
• Force Account Labor
Equipment
FEMA refers to City equipment, vehicles, and assets as Force Account Equipment.
FEMA considers the cost of using FAE, including permanently mounted generators,
based on hourly rates. FEMA will only consider the time the equipment was in use;
unless it was used intermittently for more than half of the day.
City Departments are required to maintain a summary report of the Equipment and
Supplies used during the disaster. Estimate equipment costs using FEMA’s Schedule
of Equipment Rates.
Documentation for equipment should include the following details:
• Date of equipment use
• Equipment type
• Name of employee using equipment
• Equipment Check-In and Check-Out Time
• Total Hours used
• Miles upon check-out, check-in, and total miles used (vehicles)
The following documentation is required from City Departments:
• Disaster Operations Time and Activity Log or City Works Reports
• Force Account Equipment and/or Force Account Rented Equipment
Materials and Supplies
FEMA will consider the cost of materials and supplies, if:
• The materials and supplies are or will be purchases and are justifiably needed
to effectively respond to and/or recover from the incident, or
• The supplies are or will be taken from the City’s warehouse supplies or stock,
used for the incident, and properly documented.
13
City Departments will keep record and document any materials or supplies required
for emergency work or permanent work. Track the costs of materials and supplies
using invoices, receipts, and purchase orders. Expense documentation should be
saved on the public drive in the appropriate incident folder.
City Departments should include the following information:
• Date of purchase
• Unit price
• Number of units purchased; and
• Function.
The following documentation is required from City Departments:
• Purchase Orders
• Invoices / Receipts
• P-Card records
The Finance Department will collect the invoices, receipts, and purchase orders
provided by City Departments. The Force Account Materials Form is a FEMA form
that can be used to track the costs of materials and provided as supporting
documentation for cost recovery.
The following documentation is required from the Finance Department:
• All expense receipts, invoices, and purchase order supporting documentation
• Force Account Materials (optional, only if expense sheet provided)
Contracts and Leases
City Departments should keep track of contracts entered into for emergency or
permanent work.
The Finance Department, Purchasing Division will collect and retain all contracts
from City Departments and provide a FEMA Force Account Contract Sheet for cost
recovery. The Force Account Contract Form is used to track contract costs and
provided as supporting document for cost recovery. The Purchasing Division will
provide the following documentation for contracts:
• Copy of contract, scope of work, vendor purchase orders, invoices,
payments; and
• Explanation detailing the execution of the contract and procurement
methodology.
• Force Account Contracts
Donated and Volunteer Resources
Donated resources used on eligible work that is essential to meeting immediate
threats to life and property resulting in a major disaster may be credited toward the
non-Federal share of grant costs under the PA program. Donated resources may
include volunteer labor, donated equipment and donated materials.
14
All volunteer hours, equipment, and materials must be documented using the
Disaster Operations Time and Activity Log and include the following information:
• Hours – Volunteer’s full name, date, hours worked, location, and detailed
description of work performed (e.g. removing debris, serving food at a
shelter, donating water or ice, etc.)
• Equipment – Type of equipment (to include size, capacity, horsepower, and
make and model as applicable), operator’s name, date, hours, and miles (if
applicable). The equipment time must match to an operator, location of work
performed and time worked.
• Materials – Vendor, description of material, usage of material, quantity,
price, and date received.
Examples include but are not limited to:
• Removing eligible debris
• Filling and placing sandbags
• Donating equipment to raise or reinforce a levee
• Donating materials, such as rocks or sand
• Search and rescue when part of an organized search and rescue operation
• Professional safety inspections
• Mass food and shelter for victims, when not the mission of the organization
The following documentation is required from City Departments:
• Disaster Operations Time and Activity Log
• Volunteer Sign-In Sheets
• Donation Records
Disaster Grant Application
All City Departments seeking a disaster grant or any form of external disaster
recovery funding must complete a Grant Application Approval Form and Budget
Form signed by the Department Director for further review and approval by the
City Manager and Director of Finance. This applies to Hazard Mitigation Assistance
(HMA) Grants, Community Development Block Grant – Disaster Recovery,
Community Development Block Grant – Mitigation, Federal Highway Administration,
Emergency Relief Program, and other federal and state disaster recovery grants.
The Emergency Management Coordinator is authorized to submit a Request for
Public Assistance (RPA) to FEMA for declared disasters. If approved by the City
Manager, the Grant Recipient Department must coordinate their application with
the Grants Management Team. Disaster grant applications with budgets that a)
exceed $50,000 in external funding; b) require a local match of any amount or c)
as a condition of the funder, will require City Council review/approval prior to
submission.
The Grants Management Team will manage pre-application documents, Council
approval, signatures, and work with the GRD Project Manager to complete all
application requirements in a timely manner. Please note that Legal review, Council
approval, and/or action and public notices may add up to 30-days to the grant
application schedule.
15
The OEM serves as the City of Baytown’s Applicant Agent for Public Assistance and
is not required to submit the Grant Application Approval Form and Budget
Form for Public Assistance (PA) since funds are typically already expended and the
city is seeking reimbursement of one-time expenditures related to a declared
disaster and City Manager has approved OEM to act on behalf of the City of
Baytown to maximize federal reimbursement. Baytown OEM will coordinate all
public assistance projects and applications with the Grants Management Team and
Human Resources, Risk Management.
Disaster Funds Management
When any authorized City of Baytown department or city employee applies for,
accepts, and administers a disaster grant, the City assumes the responsibility for
administering the disaster grant and the financial assistance in accordance with the
applicable provisions of federal, state, and local laws, regulations, contracts, and
disaster grant agreements.
The following section of this document establishes a standardized procedure for
receiving, managing, and applying disaster funds upon acceptance to support
disaster finance and cost recovery.
The Disaster Funds Management process includes the following:
Disaster Funds Management Process
Fund Acceptance Procedures
Receive Funds
The City of Baytown will be sent a Letter of Award from the federal or state funding
source providing the award amount, federal cost share, and local cost share per
grant terms and conditions. The award letter will be sent by OEM and the Finance
Department, Grant Management Team to the Legal Department for review of the
terms and conditions. Baytown OEM and the Grants Management Team will then
forward the Award Letter and Terms and Conditions to the City Manager for
approval to accept funds and certify the City of Baytown can meet cost-share
requirements. Acceptance of Awards do not require City Council approval, since the
grant application was approved by City Council upon submission and allows the City
Manager to accept or deny awards.
Funds
Acceptance
Funds
Management
Closeout and
Audit
16
Deposit Funds
The Finance Department, Grant Accountant will create separate general
ledger/project accounts for each project awarded. These accounts will be organized
by a unique account number and include the federal disaster number and grant
type upon receipt and deposit of funds received.
If required by certain disaster grant terms and conditions, the Finance Department
will open an interest-bearing account, and report interest earned every quarter, as
part of the quarterly report required for the funding source.
Notify Awardees
The Finance Department, Grant Management Team will notify the Finance Director,
Assistant Finance Directors/Controller, and Office of Emergency Management upon
receipt of disaster funds. In addition, the Finance Department will notify the Grant
Recipient Department (GRD) managing the project implementation that sponsored
the application submission.
The GRD will strive to commence grant projects within 60-days following award
acceptance and activation and notify the Grants Management Team and funder’s
Grant Manager/Program Officer if unable to meet this operational goal.
Funds Management Procedures
Establish Funds Budget
The Finance Department will establish a grant budget as part of the application
process and provide an account with funds budgeted to meet the award amount
and federal cost share. The City Department submitting a pre-disaster, hazard
mitigation, or resiliency grant application will coordinate with the Finance
Department to ensure the annual budget process includes funds budgeted for grant
projects. Some declared disasters may result in unbudgeted expenditures that will
deplete general funds department or division budgets and contingency funds, that
will require the Finance Department to seek approval from the City Manager and
City Council to amend the city budget to account for disaster expenditures prior to
grant approval from a federal or state funding source.
Establish Financial Controls
The Finance Department will create disaster-specific accounting codes. The Finance
Department will segregate funds by funding source and purpose. The Finance
Department and City Department managing the disaster grant will monitor fund
compliance and allowable use.
Fund Tracking and Accounting
The Finance Department will utilize the city’s financial management software,
payroll software, and banking system to track all transactions. The Finance
Department will assign a unique code to each funding source and expense category.
The Finance Department will maintain records in accordance with GAAP and funder
terms and conditions requirements.
17
The GRD must appropriately budget, track and report all expenditures related to
any project that is funded in whole or in part by external funding including but not
limited to Capital Expenditures. This includes expenditures that are funded by a
local match (also referred to as “Cost Sharing” or “Cost Matching”) or other City
contribution or Capital Improvement Program funds.
Internal Controls
In order to ensure that the City of Baytown fulfills its fiduciary and administrative
responsibilities, the Finance Department has established a system of internal
controls designed to provide reasonable assurances regarding the achievement of
citywide and program level objectives in the following categories:
• Effectiveness and efficiency of operations;
• Reliability of financial and programmatic reporting;
• City compliance with applicable laws, regulations, contracts, grant
agreements, and other compliance requirements;
• Transactions are properly accounted for and recorded;
• Transactions are executed in compliance with all laws, regulations and
provisions of contracts and grant agreements that could have a material
effect on federal and other programs; and,
• Funds, property and other assets are safeguarded against loss from
unauthorized use or disposition.
• Implement an internal compliance and ethics program that encourages the
recognition and reporting of fraud, waste, or abuse.
• The City will not use federal or state funds to offset the cost of a project that
has funding appropriation within the City’s budget.
• The City must, at a minimum, provide the equivalent insurance coverage for
real property and equipment acquired or improved with Federal funds as
provided to property owned by the non-Federal entity. Federally-owned
property need not be insured unless required by the terms and conditions of
the Federal award in compliance with 2 C.F.R. §200.310.
Monitor Use of Funds and Reporting
The Finance Department, Grants Management Team will coordinate with City
Departments managing disaster grant funds to prepare regular (e.g., quarterly)
financial and progress reports.
The Finance Department, Grants Management Team will be primarily responsible
for financial progress reports and the GRD managing the disaster grant project is
primarily responsible for providing project updates for progress reports. The
Finance Department will submit reports to funders.
The Finance Department will monitor use of funds and will coordinate with city
departments managing disaster funds to adjust project scopes per grant terms and
conditions as needed.
The GRD must inform the Finance Department, Grant Management Team of any
budget modifications in a timely manner and before committing to any changes;
most budget modifications require funder pre-approval.
18
Request Reimbursements or Advance Funds
The Baytown OEM will coordinate with the Finance Department to gather and collect
disaster cost documentation to submit to FEMA for Public Assistance (PA) requests
for reimbursements. The GRD will coordinate with the Finance Department, Grant
Management Team to submit documentation to request reimbursements from all
other federal and state disaster funding sources. In addition, disaster funds that
allow for advance requests will be submitted by the Finance Department to ensure
accurate deposit and accounting of funds.
Closeout and Audit
The GRD managing the project will coordinate with the Finance Department, Grant
Management Team to complete final closeout reports, duplication of benefit forms,
and reconciliations. The Finance Department, Grant Management Team will prepare
final programmatic, financial, and other funder-required reports and documentation
to closeout projects in coordination with the GRD. The Finance Department will
close out disaster grants in City’s financial and grants management systems within
sixty (60) days after closing the grant with the funder.
The Finance Department will conduct internal audits of disaster fund usage to
ensure compliance with federal and state terms and conditions. The Finance
Department will use audit findings to improve future disaster fund management.
The Finance Department and City Departments managing projects will coordinate
with external auditing agencies or funding sources by responding to requests for
information. The Finance Department and City Departments managing projects will
maintain all financial records and project documentation in accordance with city,
federal, and state records retention requirements and grant terms and conditions
for audit purposes. The Finance Department, Grant Management Team will provide
all necessary documents and proactively communicates potential audit findings to
Grant Recipient Department (GRD) and Finance for review and technical support
during and following a Single Audit or other review.
Roles and Responsibilities
Department Task Assignments
City Manager • Provide strategic guidance and executive leadership in
disaster finance and cost recovery policies.
• Establishes the Disaster Finance Taskforce as
warranted for major or catastrophic disasters.
EOC Finance and
Administration
Section
• Finance Director or Assistant Directors serves as the
Finance and Administration Section Chief.
• May activate the following ICS units: Time Unit,
Procurement Unit, Cost Unit, or a
Claims/Compensation Unit .
19
Department Task Assignments
• Completes F&A functions outlined in the EOC Standard
Operating Guide, Recovery Annex, and EOC Position
Tasks Books.
Disaster Finance
Taskforce
• Established at direction of City Manager
• Composition includes:
o City Manager’s Office
o Finance
o Human Resources
o Legal
o Emergency Management
• Document all damages and cost impacts
• Log and track time and expenses
• Document all expenditures
• Document all equipment and materials used
• Document use of mutual aid
• Document volunteer hours
• Identify leads for each project
• Engage Legal for compliance
• Seek reimbursement from federal funding programs
Finance
Department
• Finance Director provides direction and management to
Finance Department staff to streamline and maximize
disaster cost recovery efforts.
• Payroll coordinates with department timekeepers to
track regular and overtime hours related to disaster.
• Accounting establishes disaster codes based upon the
incident to properly track costs related to labor,
equipment, materials, and contracts.
• Purchasing serves as Procurement Uni and assists City
Departments with contracts and purchases related to
the disaster.
• Coordinates with the City’s Applicant Agent for Public
Assistance on project worksheets (PWs), request for
information (RFIs), and project monitoring and
reporting.
• Manages acceptance of awards, receiving funds,
managing funds, and applying funds per disaster terms
and conditions.
Human Resources
Department
• Manages City’s Risk Management Program.
• Files claims with insurance and worker’s compensation.
• Collects disaster damage information from Facilities
Maintenance and City Departments for city facilities
and contents to submit insurance claims.
Baytown Office of
Emergency
Management
(OEM)
• Serves as the city’s Applicant Agent for FEMA Public
Assistance and submits Request for Public Assistance
(RPA).
20
Department Task Assignments
• Coordinates with FEMA and TDEM on project
worksheets (PWs), request for information (RFIs), and
project submission, monitoring, and reporting.
• Provides technical assistance on disaster recovery
policies and programs.
• Liaises with County, State, and Federal agencies on
disaster recovery programs.
• Coordinates with the EOC Finance and Administration
Section and Finance Department to ensure the city
maximizes disaster cost recovery process.
Legal Department • Provides legal counsel and legal interpretation of
statutes, regulations, and regulations related to
disaster recovery programs.
• Provides legal counsel on ownership and legal
responsibility of property owned, operated, or leased
by the City of Baytown or Baytown special purpose
districts.
City Departments • Designates a staff member to collect and compile
disaster cost recovery documentation for each
department
• Provides Disaster Operations Time and Activity Logs for
employees assigned tasks or work related to the
incident.
• Ensures time provided on Disaster Operations Time
and Activity Log or City Works Reports aligns with
ExecuTime.
• Provides documentation for expenses and expenditures
related to the incident for reimbursement.
• Ensure purchases for materials and supplies are
properly tracked using appropriate budget and project
codes for the incident.
• Ensures employees appropriately track and report
regular, over time, and standby time in ExecuTime
using appropriate budget and project codes for the
incident.
• Provides documentation on use of Equipment (vehicles,
apparatus, major tools, and heavy equipment)
• May serve as a Grant Recipient Department to manage
projects awarded funds and required to coordinate with
Finance Department, Grant Management Team and
OEM.
21
Development and Maintenance
Development
This document was developed with input and feedback from several City
Departments.
Maintenance
This document will be updated in its entirety every five years in accordance with
the Recovery Support Annex. In addition, this appendix will be evaluated,
reviewed annually, and updated in accordance with the Basic Plan and Emergency
Planning SOG. The Director of Finance and Emergency Management Coordinator
are responsible for updates and revisions to this document.
Training, Exercise, and After-Action Reports
Training and Exercises
The Baytown Office of Emergency Management (OEM) maintains a Training and
Exercise program and Integrated Preparedness Plan (IPP), which are updated on a
regular basis to enhance the City of Baytown’s capability in the mission areas of
prevention, protection, mitigation, response, and recovery. The provisions of this
document will be incorporated into the Training and Exercise Program and IPP.
Exercises may include workshops, table-top exercises, functional exercises, and
full-scale exercises related to disaster finance and cost recovery.
The following training Courses are available:
• IS-403 Introduction to Individual Assistance (IA)
• IS-559 Local Damage Assessment
• IS-772 IA PDA Orientation
• IS-1000 Public Assistance Program and Eligibility
• IS-1001 Public Assistance Delivery Model Orientation
• IS-1002 FEMA Grants Portal
• IS-1005 Public Assistance Alternative Procedures
• IS-1009 Conditions of the Public Assistance Grant
• IS-1012 Direct Administrative Costs
• IS-1013 Costing – Estimates and the Cost Estimating Format
• IS-1020 Public Assistance Donated Resources
• IS-1022 Substantiating Disaster-Related Damages to Buildings, Contents,
Vehicles, and Equipment
• IS-1003 The Exploratory Call, the Damage Inventory, and the Recovery
Scoping Meeting
• IS-2900 National Disaster Recovery Framework (NDRF) Overview
• EL-973 NIMS ICS All-Hazards Finance and Administration Section Chief (FSC)
Course
• DMP-370 Disaster Recovery Awareness
• DMP-480 Introduction to Disaster Recovery Public Assistance Programs
• DMP-580 Disaster Recovery for Senior Officials
• Disaster Cost Recovery Training, The Martinet Group, LLC.
22
After Action Reports
Any lessons-learned via training, exercises or real-world incidents will be
documented and appropriate corrective action will be implemented and
incorporated into this document for process improvement. Findings will be
incorporated into a After Action Report – Improvement Plan (AAR_IP), the
Integrated Preparedness Plan, and annual Corrective Action Tracker.
Authorities and References
Authority
Federal procurement standards are covered in 2 CFR, Part 200 which codifies the
regulatory standards and practices for managing federal grant funds. The City of
Baytown shall be compliant with these standards and incorporate these standards
into local policies and procedures.
Texas Government Codes (to include 418.016 suspension of certain laws and rules,
418.074 acceptance and allocation of gifts and grants, 418.107 local finance,
418.1075 suspension of deadlines imposed by local law, 418.118 reimbursement of
costs: state request or federal disaster declaration, 418.1181 reimbursement of
costs: mutual aid request by local government entity, 418.126 pre-event disaster
response contracts, 418.152 compensation for services and property, 418.153
compensation claims, along with Texas Government Code 252,021 emergency
purchasing power, Texas Administrative Code Title 37, Part 1, Chapter 7, current
City of Baytown Police and Fire Union Contracts, and City of Baytown Charter and
applicable ordinances and policies.
References
• FEMA, Public Assistance Policy and Program Guide (PAPPG), Version 5, 2025.
• FEMA, Financial Management Support Annex, 2016
• FEMA, Disaster Financial Management Guide, April 2020
• FEMA, Procurement Disaster Assistance Team (PDAT) Field Manual, 2019
• TDEM, Emergency Support Function (ESF) 16 – Recovery, 2025
• TDEM, Response and Recovery Guide, May 2020
• City of Baytown, Recovery Support Annex
• City of Baytown, Volunteer and Donations Management Annex
• City of Baytown, Hurricane Annex
ATTACHMENTS
• Attachment 1 – Local Disaster Cost Recovery Forms
• Attachment 2 – FEMA Disaster Cost Recovery Forms
• Attachment 3 – FHWA Disaster Cost Recovery Forms
• Attachment 4 – Baytown Disaster Finance and Cost Recovery Process
23
• Attachment 5 – FEMA Public Assistance Delivery Model
• Attachment 6 – DFCR Email Notifications to City Employees
24
Attachment 1 – Local Disaster Cost Recovery Forms
25
26
27
** This is an optional form and is not a requirement for Departments to fill out
28
29
30
Insurance Damage Assessment Form
31
Attachment 2 – FEMA Disaster Cost Recovery Forms
The forms below should be used for the Public Assistance (PA) disaster cost
recovery process.
Source: FEMA https://www.fema.gov/media-collection/public-assistance-project-
worksheets or https://grants.tdem.texas.gov/site/Forms.cfm
• Request for Public Assistance - FEMA Form 009-0-49
• Project Worksheet - FEMA Form 009-0-91
• Damage Description and Scope of Work Continuation Sheet - FEMA Form
009-0-91A
• Cost Estimate Continuation Sheet - FEMA Form 009-0-91B
• Force Account Labor Summary Record - FEMA Form 009-0-123
• Materials Summary Sheet - FEMA Form 009-0-124
• Rented Equipment Summary Record - FEMA Form 009-0-125
• Contract Work Summary Record - FEMA Form 009-0-126
• Force Account Equipment Summary Record - FEMA Form 90-127
• Applicant's Benefits Calculation Worksheet - FEMA Form 009-0-128
32
Attachment 3 – FHWA Disaster Cost Recovery Forms
https://www.fhwa.dot.gov/reports/erm/fhwa1547.pdf
33
Attachment 4 – Baytown Disaster Finance and Cost Recovery Process
34
Attachment 5 – FEMA Public Assistance Delivery Model
35
Attachment 6 – Sample DFCR Email Notifications to City Employees
Initial DFCR Notification
Disaster Declaration
The Mayor issued a local disaster declaration which requires all City Departments and
employees performing disaster work to keep appropriate disaster cost recovery
documentation.
Disaster Activity Log
City Employee Instructions:
Each employee performing work related to the disaster is required to complete the Disaster
Operations Time and Activity Log Form or City Works Report. The blank form is
available on the public drive at [insert URL].
All City Employees working the disaster are required to return the Activity Log Form
Works Report to their respective City Department Timekeeper at the end of each
operational period; i.e. every 12 hours. City Works Reports can be submitted by each pay
period.
Disaster Cost Documentation Folders
Department Timekeepers:
The Department's Timekeeper will collect the Disaster Operations Time and Activity Log
Forms from all employees conducting disaster related work. Upload and save these Forms
on the public drive at [insert URL].
The Department's Timekeeper will use the Disaster Operations Time and Activity Log to
complete the following forms:
• Force Account Labor
• Force Account Equipment
• Force Account Rental Equipment
• Force Account Material (optional, save all receipts and documents)
• Force Account Contracts
Upload and save these Forms to the on the public drive at [insert URL].
Disaster Codes
All expenses related to the disaster should be coded to the following accounts. Please save
support documentation (receipts, POs, etc.) to the public drive at [insert URL].
Use the following disaster codes:
Org. XXXXX [Insert Incident Name]
A few of the accounts set up are:
XXXXX Regular Wages
XXXXX Overtime
XXXXX Disaster Supplies
XXXXX Food & Beverages
XXXXX Cleaning Janitorial
XXXXX Medical Supplies
36
Disaster Pay Policy Notification
Disaster Pay Policy
Refer to the City’s Administrative Rules, Chapter 1. Section 8 d: Pay Provisions at
http://cobvision.cibaytown.net/employee-resources/policy-manual.
Insurance Damage Assessment Notification
Insurance Damage Reports
Each Department with facilities or property damaged will coordinate with HR and Facilities
Maintenance to document damages utilizing an online Survey123 Damage Assessment
Form. City Departments should document photos and provide support documentation to HR
and OEM.
Property Damage Assessment Tool:
https://survey123.arcgis.com/share/605e01b4f7034803a0895a6c4061a8ee?open=menu
Online Form Instructions
1. Select Property Type: City Facility/Infrastructure
2. List the Facility name and address.
3. List the date the damage occurred if known.
4. List the cause of loss/damage
5. Describe the damage
6. Provide an estimate of repair costs (labor, materials, contracted service, etc.)
7. Were emergency repairs or any mitigation completed?
8. Upload Photos
9. Please include Inspector Name and Phone Number
The Insurance Damage Assessment Form excel sheet will be maintained as a back-up
form, should the online ARCGIS/Survey123 system not be available to document damages
to city facilities and infrastructure.
37
DFCR Reporting Requirements and Deadlines Notification
Incident Period
The incident period for a declared disaster is determined by TDEM and FEMA based upon
Preliminary Damage Assessment (PDA) findings and surveys of damage. The incident period
for [INSERT INCIDENT] is MM/DD/YYYY – MM/DD/YYYY.
Force Account Documentation
The following documentation below is to be saved to your appropriate department folder on
the public drive at [insert URL].
DEADLINE: All force account documentation and support records should be submitted by
MM/DD/YYYY.
Any documentation that is not saved by this deadline will not be reimbursable, therefore,
will stay in your department operating budget.
Force Account Material
P Card Administrators/Administrative Staff:
Save all invoices/receipts/Purchase Orders/bids/ and copy of contracts in the Expenses
folder found in your appropriate department folder on the public drive at [insert URL].
Force Account Labor
City Departments are required to maintain a Force Account Labor Report or City Works
Report for the labor dedicated to the disaster.
Department Timekeepers:
The Department's Timekeeper will collect and upload the following documents to the
appropriate department folder on the public drive at [insert URL].
• Disaster Operations Time and Activity Logs or City Works Reports
• A Copy of each ExecuTime Time Card for the hours that corresponds to the days on
the Disaster Operations Time and Activity Logs or City Works Reports
• Complete the Force Account Labor spreadsheet (spreadsheet is attached) for the
department based on the hours on the Activity log.
o Fill out everything in Yellow.
Transfer the hours from the employee’s Disaster Operation Time and
Activity Logs or City Works Reports, but ensure that you are
separating it by Over Time and Regular Time.
Do not put hours on this spreadsheet that do not match the hours that
they filled out on their activity logs or city works reports
If you have questions or need help filling this spreadsheet out, please
call the Finance Department, Payroll Division.
38
Force Account Equipment
City Departments are required to maintain a summary report of the Equipment used during
the disaster. This includes use of city vehicles, equipment, and generators. Most of this
information should be captured in the Disaster Operations Time and Activity Log or City
Works Report.
FEMA refers to City equipment, vehicles, and assets as Force Account Equipment. FEMA
considers the cost of using FAE, including permanently mounted generators, based on
hourly rates. FEMA will only consider the time the equipment was in use; unless it was used
intermittently for more than half of the day.
Instructions:
1. Review Disaster Operations Time and Activity Logs or City Works Reports to ensure
employees included use of equipment.
2. Complete a Force Account Equipment Summary Record for the Department based on
the Activity Log information provided by employees operating equipment.
(spreadsheet is attached)
3. Use the FEMA Schedule of Equipment Rates to estimate hourly rates. Click here:
https://www.fema.gov/assistance/public/schedule-equipment-rates.
4. Save the Force Account Equipment Summary Record in the appropriate department
folder on the public drive at [insert URL].
If you have any questions on Force Account Equipment, please reach out to Baytown Office
of Emergency Management (OEM) staff at OEM@baytown.org.
Contact Information
For more information, please contact the Baytown EOC at EOC.Baytown@baytown.org or
the EOC Finance and Administration Section at EOC.Finance1@baytown.org.
For Finance Department, please contact Finance@baytown.org.
For WCI and Insurance questions, please contact Human Resources, Risk Management at
RiskManagement@baytown.org.
L
CITY OF BAYTOWN
Community Lifelines and Private Sector
Coordination Annex
Emergency Support Function (ESF) 14
BAYTOWN FIRE DEPARTMENT
OFFICE OF EMERGENCY MANAGEMENT
MARCH 2025
For Official Use Only (FOUO)
ESF 14 – 2
Approval and Implementation
City of Baytown, Texas
Community Lifelines and Private Sector Coordination Annex (ESF) 14
This annex is hereby approved for implementation and supersedes all
previous editions.
David J. Alamia Jr., MPA, CEM Date
Emergency Management Coordinator
03/13/2025
For Official Use Only (FOUO)
ESF 14 – 3
Record of Changes
CHANGE # DATE OF
CHANGE DESCRIPTION CHANGED BY
For Official Use Only (FOUO)
ESF 14 – 4
Table of Contents
Approval and Implementation .......................................................................... 2
Record of Changes ......................................................................................... 3
Primary and Support Agencies ......................................................................... 6
Primary Agency .......................................................................................... 6
Support Agencies ........................................................................................ 6
Authority ...................................................................................................... 6
Purpose ........................................................................................................ 6
Scope ........................................................................................................... 6
Explanation of Terms ...................................................................................... 7
Acronyms ................................................................................................... 7
Definitions.................................................................................................. 7
Situation and Assumptions .............................................................................. 9
Situation .................................................................................................... 9
Assumptions ............................................................................................... 9
Concept of Operations .................................................................................. 10
General ................................................................................................... 10
Strategy 1 – Local Industry Coordination ..................................................... 11
Strategy 2 – Local Business Coordination ..................................................... 11
Strategy 3 – Community Lifelines Condition Coordination ............................... 12
Strategy 4 – Critical Infrastructure Security and Resilience Coordination .......... 12
Organization and Assignment of Responsibilities .............................................. 13
Organization ............................................................................................. 13
Assignment of Responsibilities .................................................................... 14
Direction, Control, and Coordination ............................................................... 17
General ................................................................................................ 17
Lines of Succession ................................................................................ 18
Readiness Levels .......................................................................................... 18
Level 4 – Normal Conditions .................................................................... 18
Level 3 – Increased Readiness ................................................................. 18
Level 2 – High Readiness ........................................................................ 19
Level 1 – Maximum Readiness ................................................................. 19
Information Collection, Analysis, and Dissemination ......................................... 20
Administration, Finance, and Logistics ............................................................ 21
Administration and Finance ........................................................................ 21
For Official Use Only (FOUO)
ESF 14 – 5
Logistics .................................................................................................. 21
Plan Development and Maintenance ............................................................... 22
Training and Exercises ............................................................................... 22
Training ................................................................................................ 22
Exercises .............................................................................................. 22
References .................................................................................................. 23
Appendices and Attachments ......................................................................... 23
Attachment 1 – Community Lifelines Components ......................................... 24
Attachment 2 – Community Lifeline Operational Status .................................. 25
Attachment 3 – Baytown Community Lifelines .............................................. 26
Attachment 4 – EHCMA Industry Status Board .............................................. 30
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Primary and Support Agencies
Primary Agency
• Baytown Fire Department, Office of Emergency Management
Support Agencies
• City Manager’s Office, Economic Development Division
• Baytown Public Works and Engineering Department
• Baytown Local Emergency Planning Committee (LEPC)
• Baytown Chamber of Commerce
• CenterPoint Energy
Authority
• See Section 1 of the Basic Plan for general authorities.
• City of Baytown, Code of Ordinances, Chapter 22 – Emergency Management
• Texas Government Code
o § 418 Emergency Management
o § 421 Homeland Security
Purpose
The purpose of this annex is to define the organization, operational concepts, and
responsibilities for Emergency Support Function (ESF) #14 which supports the
coordination of local businesses, industry, and critical infrastructure owners and
operators during a major disaster or catastrophic incident adversely impacting
community lifelines. Community Lifelines enables the continuous operation of
critical government and business functions and is essential to human health and
safety or economic security.
Scope
This Annex was developed to provide guidance on the use of community lifelines
and private sector organizations in information collection, analysis, reporting,
decision-making, and dissemination in responding and recovering from disasters
and incidents.
For Official Use Only (FOUO)
ESF 14 – 7
Explanation of Terms
Acronyms
AAR-IP After-Action Report / Improvement Plan
BFD Baytown Fire Department
BPD Baytown Police Department
CAP Baytown Community Advisory Panel
CIKR Critical Infrastructure and Key Resources
CIP Critical Infrastructure Protection
CISA Cybersecurity and Infrastructure Security Agency
CISR Critical Infrastructure Security and Resilience
DC District Chief (TDEM)
EDA U.S. Economic Development Administration
EHCMA East Harris County Manufacturer’s Association
EOC Baytown Emergency Operations Center
EOP Emergency Operations Plan or Basic Plan
EMC Emergency Management Coordinator
FEMA Federal Emergency Management Agency
IAP Incident Action Plan
ICS Incident Command System
IMT Incident Management Team
IP Improvement Plan
LEPC Baytown Local Emergency Planning Committee
LNO/LOFR Liaison Officer
NIPP National Infrastructure Protection Plan
NIMS National Incident Management System
OEM Baytown Office of Emergency Management
PIO Public Information Officer
PSC Planning Section Chief
PWE Baytown Public Works and Engineering
SBA U.S. Small Business Administration
SITREP Situation Report
SITUL Situation Unit Leader
SOG Standard Operating Guide
SSA Sector Specific Agencies
TDEM Texas Division of Emergency Management
Definitions
Community Impact: Occurs when basic lifeline services or capabilities are
disrupted and reduce their ability to provide critical services to survivors.
Community Lifelines: A lifeline enables the continuous operation of critical
government and business functions and is essential to human health and safety or
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ESF 14 – 8
economic security. Lifelines are the most fundamental services in the community
that, when stabilized, enable all other aspects of society to function. Critical
Lifelines re an integrated network of assets, services, and capabilities that are used
day-to-day to support the recurring needs of the community.
Communications: all types of communications necessary to effectively respond to
and help survivors, in addition to banking and electronic payment needs.
Energy: focused on only electricity and fuel, which are both essential to a
successful response operation.
Food, Hydration, and Shelter: covers not only traditional feeding and hydration
services, which are routinely paired with sheltering (hence the grouping of
components in this lifeline), but it also covers agricultural infrastructure that is
closely tied.
Health and Medical: covers all aspects of medical services required during an
incident, including survivor care, fatality management, public health, and the
medical supply chain.
Incident Commander: The IC is responsible for all aspects of the incident and
sets priorities and incident objectives. The IC is designated by the responsible party
or authority having jurisdiction. The HAZMAT Team Coordinator may serve as the
IC during HAZMAT incidents. The IC is responsible for on-site strategic decision and
actions throughout the response phase. Maintains close liaison with the appropriate
government agencies to obtain support and provide progress reports on each phase
of the emergency response. Must be trained to a minimum of operations level and
completed training up through and including ICS-400 in the Incident Command
System.
Incident Command System: A standardized on-scene emergency management
system specifically designed to provide for the adoption of an integrated
organizational structure that reflects the complexity and demands of single or
multiple incidents, without being hindered by jurisdictional boundaries. ICS is the
combination of facilities, equipment, personnel, procedures, and communications
operating within a common organizational structure, designed to aid in the
management of resources during incidents. ICS is used for all emergency
responses and is applicable to small, as well as, large and complex incidents. ICS
is used by various jurisdictions and functional agencies, both public and private, or
organized field-level incident management. ICS is required to be used for command
of any/all hazardous materials incidents and accidents (CFR 1910.120).
National Incident Management System (NIMS): The system mandated by
HSPD-5 that provides a consistent nationwide approach for Federal, State, local,
and tribal governments; the private sector; and non-governmental organizations to
work effectively and efficiently together to prepare for, respond to, and recover
from domestic incidents, regardless of cause, size, or complexity, the NIMS includes
a core set of concepts, principles, and terminology.
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Response: The efforts to minimize the hazards created by an emergency by
protecting the people, environment, and property and returning the scene to
normal pre-emergency conditions.
Safety and Security: covers responder and survivor safety and the continuity of
government (including basic services, firefighting, and law enforcement).
Water Systems: covers all water movements related to intake, treatment,
storage, collection, distribution, and discharge.
Situation and Assumptions
Situation
Most critical infrastructure and essential services are owned and operated by the
private sector. In the event of a natural, human-caused, or technological disaster, a
rapid and coordinated response becomes essential, involving local, state, and
federal agencies, private sector entities, and non-governmental organizations
(NGOs). Given the scale and impact of the incident, close collaboration is required
to establish shared priorities, goals, and objectives, and to allocate resources
effectively for restoring and recovering critical infrastructure. Where possible, public
sector utilities and services are supporting private sector efforts to accelerate
restoration. Mutual aid agreements between private sector organizations are also
important to enhance long-term and economic recovery efforts.
Local industry in Baytown are major employers and economic engines of the
community that provide economic security to the entire local community, region,
and nation. Local industry is a key component to response and recovery efforts and
serve as strategic partnerships with the City of Baytown to effectively restore
essential services post-incident.
Assumptions
• Community Lifeline and private sector organizations impacts and stabilization
projections will support city leadership decisions and prioritization of
response and recovery objectives.
• Supply chain logistics and complex interdependencies exist between
government and private sector critical infrastructure.
• Private sector organizations should initiate restoration efforts immediately,
independent of local or state activation requirements.
• Private sector organizations will coordinate closely with the Baytown
Emergency Operations Center (EOC) to share intelligence, report stabilization
status, and stay informed about the status of response and recovery
operations.
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• Post-Incident re-entry and access control challenges may delay damage
assessment, restoration, and recovery efforts.
• Resources from local, state, federal, mutual aid, and private sector partners
will all be mobilized to support response and recovery efforts.
• The desired end-state of any incident or disaster within the City of Baytown
is that community lifelines have been stabilized and baseline service is
available to a majority of residents.
• Community Lifeline and private sector stabilization does not imply long-term
community recovery is complete.
• Local oil and gas and chemical industry will utilize East Harris County
Manufacturer’s Association (EHCMA) Industry Dashboard to share information
and updates on operational status.
Concept of Operations
General
The City of Baytown will coordinate with community lifeline and private sector
organizations to coordinate response activities and support the restoration of critical
infrastructure. Baytown OEM will assess the need to activate this annex and
designate a Private Sector Liaison.
Community Lifelines include the following:
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Strategy 1 – Local Industry Coordination
The Baytown Local Emergency Planning Committee (LEPC) and Baytown Office of
Emergency Management (OEM) will coordinate with private sector organizations
within the hazardous material community lifeline to ensure a community hazardous
material plan is maintained and to ensure response readiness amongst industry,
government, and the community.
The LEPC and OEM will meet on a monthly basis to discuss LEPC business,
emergency planning, and coordination amongst industry partners and first
responders.
Baytown OEM will also participate and attend the Baytown Community Advisory
Panel (CAP) Meetings to ensure community feedback and input is integrated into
the emergency planning process regarding hazardous material facilities.
Local Industry also conducts routinely scheduled Plant Manager Meetings to ensure
coordination between industry organizations and plant operations.
Baytown OEM and local industry partners will coordinate with the Harris County
Industrial Liaison Program to ensure coordination at all levels of government.
The Baytown Fire Department will designate an Assistant Chief to serve on the
Baytown Local Emergency Planning Committee (LEPC) to coordinate emergency
response operations amongst industry organizations that maintain Emergency
Response Teams (ERTs) or Industrial Firefighter Services.
Strategy 2 – Local Business Coordination
The Baytown Office of Emergency Management (OEM) in coordination with the City
Manager’s Office, Economic Development Division will coordinate with the Baytown
Chamber of Commerce to understand impacts, disruptions, and priorities of local
businesses within the community.
The Economic Development Manager will serve as the lead regarding economic
recovery operations in coordination with local businesses, the Small Business
Administration (SBA), and U.S. Economic Development Administration (EDA)
regarding economic recovery efforts.
The Economic Development Manager will also coordinate with the Baytown-West
Chamber County Economic Development Foundation to ensure private sector
organizations located within the City of Baytown extra-territorial jurisdiction (ETJ)
of West Chambers County.
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Strategy 3 – Community Lifelines Condition Coordination
The Baytown Office of Emergency Management (OEM) will assess the current
conditions of all community lifelines using the FEMA recommended assessment
color-scheme indicating Significant, Moderate, or Minimal impacts.
The Baytown OEM will also use the East Harris County Manufacturer’s Association
(EHCMA) Industry Dashboard to assess operational status and conditions of
industrial private sector organizations.
The Baytown OEM will also provide status updates to the Harris County Office of
Emergency Management by submitting the county’s SWEAT Report Form.
Strategy 4 – Critical Infrastructure Security and Resilience
Coordination
The Baytown Office of Emergency Management (OEM) and Baytown Police
Department will coordinate with private-sector organization regarding critical
infrastructure security and resilience planning, assessments, and programing.
In addition, the City of Baytown participates in the Houston Urban Area Security
Initiative (UASI) and other regional homeland security programs that support
critical infrastructure protection.
The Baytown Police Department will designate an officer to serve as Homeland
Security Liaison and Intelligence Officer to coordinate with local law enforcement
agencies, intelligence fusion centers, and private sector organization security
departments. This includes the Baytown OEM membership in the Federal Bureau of
Investigation’s (FBI) Houston InfraGard Chapter and Baytown Police Departments
cooperation with the FBI’s Joint Terrorism Taskforce (JTTF), Houston Fusion Center,
and Pasadena Fusion Cell.
The Baytown Fire Department also participates in the Houston Ship Channel
Security District (HSCSD) meetings and grant programs to provide maritime
firefighting capabilities to protect critical infrastructure along the ship channel.
The Baytown OEM maintains an inventory and list of critical infrastructures within
the City of Baytown.
Baytown OEM and Baytown Police Department collaborate with private sector
organizations to encourage:
• Chemical Facilities to participate in the U.S. Department of Homeland
Security (DHS) Chemical Facilities Antiterrorism Standards (CFATS) Program.
• Supporting comprehensive risk assessments for critical infrastructure and key
resources.
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• Sharing real-time incident notification and critical infrastructure protection
practices and processes.
• Developing information-sharing and analysis mechanisms to include physical
and cyber threats.
• Building security-related information sharing among public and private
entities.
The Federal Government and State of Texas have designated federal and state
agencies to serve as Sector Specific Agencies to coordinate with each of the 16
critical infrastructure sectors. Local industry, private sector organizations, and the
City of Baytown will coordinate with these agencies to ensure critical infrastructure
protection.
The National Infrastructure Protection Plan (NIPP), administered by the
Cybersecurity and Infrastructure Security Agency (CISA) designates 16 critical
infrastructure sectors; which includes the following sectors:
• Chemical Sector
• Commercial Facilities Sector
• Communications Sector
• Critical Manufacturing Sector
• Dams Sector
• Defense Industrial Base Sector
• Energy Sector
• Financial Services Sector
• Food and Agriculture Sector
• Government Facilities Sector
• Healthcare and Public Health Sector
• Information Technology Sector
• Nuclear Reactors, Materials, and Waste Sector
• Transportation Systems Sector
• Water and Wastewater Systems Sector
Organization and Assignment of Responsibilities
Organization
The City of Baytown’s normal emergency organization, described in the Basic Plan,
will carry out the direction and control function during emergency situations. The
organization of incident command operations will be pursuant to NIMS organizational
principles. The specific organizational elements to be activated for an emergency will
be determined by the IC based on the tasks that must be performed and the
resources available for those tasks.
Overall responsibility for providing Community Lifelines and Private Sector
Coordination Annex (ESF 14) coordination rests with the Office of Emergency
Management until this annex is activated and Private Sector Liaison is designated by
the City Manager or Incident Commander.
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The Private Sector Liaison will be a position within the Baytown EOC as an assigned
duty of the Liaison Officer (LNO) or as a separate position reporting to the Liaison
Officer (LNO).
Assignment of Responsibilities
Position / Agency Response Task or Action
Mayor • By state statute, the Mayor is the Emergency
Management Director responsible for the city’s
emergency management program and is
authorized to issue disaster declarations and
special authorities and emergency powers to
execute response actions.
City Manager
• Chief Administrative Officer responsible for daily
city operations and executive management.
• Leads the city’s EOC Policy Group by setting
policy priorities and designating an Incident
Commander to lead incident management.
• MAC/Policy Group will coordinate with Plant
Managers and industry senior leadership to keep
abreast of private sector and community lifeline
leadership concerns and priorities.
Emergency Management
Coordinator
• Develop plans, processes, and relationships, and
facilitates coordinated response and recovery
planning with the private sector in coordination
with the Baytown LEPC.
• Share information, including threats and
warnings, before, during and after an incident.
• Informs and orients the private sector on the
contents of the City of Baytown EOP and
encourages and facilitates the development and
coordination of equivalent private-sector
planning.
• Coordinate and conduct city incident management
functions in concert with the private sector.
• Develop and implement information sharing and
communications strategies and processes in
concert with private sector and stakeholders.
Economic Development
Manager
• Acts as the Private Sector Liaison between the
private sector and the Baytown EOC by
conveying information about the private-sector
status.
• Coordinates with Baytown Chamber of
Commerce and Baytown-West Chamber County
Economic Development Foundation.
• Coordinates economic recovery activities on
behalf of the City of Baytown.
• Organizing and coordinating briefings to support
senior staff and management with background
information on matters related to
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Position / Agency Response Task or Action
communicating, coordinating and collaborating
with private sector organizations.
Baytown Police Department • Designates an Homeland Security and
Intelligence Officer to coordinate with law
enforcement, intelligence, and OEM.
• Coordinates with local industry security
personnel and provide industrial patrol services
with off-duty officers.
• Coordinates with other law enforcement agencies
to collect and disseminate intelligence related to
impacts to community lifelines, private sector,
and critical infrastructure.
Baytown Local Emergency
Planning Committee
• The LEPC is a non-profit entity that is governed
by a charter and Executive Committee consisting
of the Chairperson, Vice Chairperson, and LEPC
Secretary-Treasurer/ Public Information
Coordinator.
• The LEPC conducts monthly meetings to
establish goals, objective and programs
regarding the Baytown area’s preparedness and
readiness for hazardous material and chemical
release incidents.
• The LEPC receives Tier II reports from regulated
facilities on an annual basis and the LEPC’s
Planning Committee utilizes this information to
develop an emergency response plan and hazard
analysis for the community in coordination with
local emergency management officials.
• The LEPC’s Emergency Response and Resource
Committee conducts trainings and exercises to
test the community’s emergency response plan
on hazardous materials in coordination with local
government officials, local response
organizations, and private industry participants.
• The LEPC’s Communication Committee assists in
public warning and alerts capabilities by
sponsoring the Emerge system and provides
recommendations to local emergency officials
regarding chemical warning systems and mass
notification systems.
• The LEPC’s Public Education and Information
Committee leads community outreach and
engagement efforts related to hazardous
material preparedness.
• The LEPC leads Community Right-to-Know
activities and responds to public information
requests from private and public entities or
directs requests to the correct organization.
•
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Position / Agency Response Task or Action
Baytown Public Works and
Engineering
• Primary agency responsible for Transportation,
Public Works and Engineering, and Utilities and
Energy.
• Responsible for infrastructure owned by the city
and facilities maintenance.
• Responsible for water and wastewater
operations.
• Responsible for debris removal operations.
• Coordinates with TXDOT to sustain
transportation system.
• Coordinates with CenterPoint Energy to sustain
electricity at critical city facilities and
infrastructure.
Private Sector Organizations • Collaborate, train, and exercise with the Baytown
EOC, additionally with regional emergency
operations centers, and the state operations
center during normal operations.
• Assist the Private Sector Liaison with the
identification and validation of potential vendors.
• Identify cross-industry interdependencies.
• Guide building localized public-private partnership
program(s).
• Provide information to the EOC regarding the
status of businesses and industries in the affected
area(s).
• In coordination with Baytown OEM provide
information regarding business impacts and the
effect on their local communities.
• Local industry will provide operational status and
updates to the Baytown EOC and utilize the
EHCMA Industry Dashboard.
• Local industry will coordinate with the city’s
private sector liaison and Harris County
Industrial Liaison.
Federal Government • Establishes the protocols, functions, and
operational procedures for the administration and
operations of the National Business Emergency
Operations Center (NBEOC), which serves as a
central public-private sector coordination
mechanism for the incident.
• Supports local, state, tribal, territorial, and insular
area governments in their response to incidents
by connecting them with the NBEOC’s national
network of private sector partners and provides
capacity building assistance to states.
• Convenes private sector organizations through
the NBEOC to identify issues for resolution and
distribute operational information.
• Improves situational awareness across affected
areas and facilitates information sharing with
businesses and NGOs through the NBEOC.
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Position / Agency Response Task or Action
• Conducts economic overviews of areas of concern
and ensures coordination with the appropriate
RSFs.
• Coordinates with corporations and other private
sector organizations on corporate humanitarian
response activities and/or philanthropic
programs.
• Facilitates information sharing among key
stakeholders, private sector partners,
government agencies, and ESFs on status of
major businesses and industries within an incident
area.
• Assists in tracking the status of key private sector
capacity and capabilities.
• Leverages private sector resource capabilities that
may be beyond the scope of the Federal
Government.
• Deploys its private sector operational coordination
staff to local, state, tribal, and other jurisdictions
requiring coordination with business
Direction, Control, and Coordination
General
Community Lifeline operational status and conditions will be coordinated and
managed by the Baytown Office of Emergency Management (OEM). Baytown OEM
will utilize the EHCMA to monitor industry operational conditions during a major
incident. The Baytown EOC will also coordinate with all community lifeline sectors to
assess operational conditions.
Upon activation of this Annex, the Incident Commander (IC) or Emergency
Management Coordinator (EMC) will recommend activation of a Private Sector
Liaison to manage the coordination of private sector organizations that impact the
community, disrupt critical services, or impact economic security. The Economic
Development Manager will be designated as the Private Sector Liaison or will be
assigned these duties as the Baytown EOC Liaison Officer (LNO).
Private Sector involvement with Incident Management Organizations:
• Private sector involvement with incident management organizations is
determined by the nature, scope, and magnitude of the incident.
Private Sector Incident Management Organizations:
• Private entities such as businesses and industry associations develop,
validate, exercise, and implement security and business continuity plans to
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ESF 14 – 18
ensure their capability to deliver goods and services. Assessments of, and
contingency plans for, the disruption of a private entity’s supply chain and
other dependencies are usually included in this planning.
• Private sector owners and operators, in many locations coordinate plans for
security and continuity/contingency programs with federal, state and local
entities.
• Representative private-sector incident management organizations may be
established to assist federal, state, or local coordination centers or field
offices to facilitate interaction, communication, and coordination with the
private sector.
Lines of Succession
The following lines of succession will apply to the following positions regarding roles
and responsibilities outlined in this annex:
Emergency Management Coordinator:
• Deputy Emergency Management Coordinator
• Fire Chief
• Designee assigned by the City Manager or Fire Chief as approved by Mayor.
Private Sector Liaison/Liaison Officer:
• Economic Development Manager.
• Economic Development Specialist.
• Designee assigned by the City Manager.
Readiness Levels
Level 4 – Normal Conditions
• EOC staffed by OEM employees to monitor situation.
• Coordinate with community lifeline and private sector via Baytown LEPC and
meetings to discuss preparedness efforts.
Level 3 – Increased Readiness
• Check the current status of community lifelines and private sector
organizations.
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• Update operational status of the EOC and private sector organizations.
• Alert staff and partners, determines personnel availability, and update EOC
staff call lists.
• Consider limited activation of EOC to monitor situation.
• Consider situation briefings for senior staff.
Level 2 – High Readiness
• Update EOC staffing requirements based on threat and activate private sector
liaison position.
• Determine specific EOC staff assignments and alert staff.
• Monitor potential emergency situation and determine possible impact to
community lifelines and private sector organizations.
• Update maps, charts, displays, and resource data to reflect community lifeline
stabilization and operational status.
• Consider situation briefings for EOC staff and private sector.
• Consider partial activation of EOC if this has not already been accomplished.
• Check status of Alternate EOC and Mobile Command Post.
Level 1 – Maximum Readiness
• Deploy EOC staff and activate the EOC.
• Monitor situation to community lifelines and private sector.
• Update maps, charts, displays, and resource lists.
• Arrange for food service if needed.
• Determine possible hazard impact areas and potential hazard effects.
• Conduct briefings for MAC/Policy Group, EOC, and private sector.
• Formulate and implement precautionary measures to protect the public.
• Coordinate with private sector organizations that may be affected.
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Information Collection, Analysis, and Dissemination
Information collection, analysis and dissemination is the primary responsibility of
the Baytown Office of Emergency Management (OEM) regarding emergency
management and homeland security matters on a daily basis. However, this
function can be fulfilled by other city departments with appropriate subject matter
expertise (SMEs), such as the Economic Development Division regarding impacts to
private sector organizations.
The Private Sector Liaison will serve as the primary coordination point for private
sector representatives to share information and maintain situational awareness with
the Emergency Operations Center (EOC). The Private Sector Liaison is tasked with
providing continuous situation updates, developing key intelligence briefings, and
ensuring that essential information is effectively communicated to decision-makers
and the EOC. This function is also supported by the Public Information Officer (PIO)
and Liaison Officer (LNO) when serving in the Baytown Emergency Operations
Center (EOC).
During EOC operations, the Planning Section Chief (PSC) and Situation Unit Leader
(SITUL) are primarily responsible for information collection, analysis and
dissemination of incident-specific information with the compilation of the EOC
Situation Report (SITREP) and position updates on information sharing platforms.
The Private Sector Liaison will provide the Planning Section status updates and
situation reports to keep partners and command informed.
The Private Sector Liaison will maintain an Incident Position Log and provide status
updates upon request to ensure situational awareness and a common operating
picture. The Baytown EOC will display the EHCMA Industry Dashboard and other
tools utilized to display the operational status of community lifelines and private
sector organizations.
The EMC and IC will determine Critical Information Requirements (CIRs) and
Essential Elements of Information (EEIs) with a reporting deadline, which will be
outlined in the Incident Action Plan (IAP).
The Baytown IT Services Department, Public Works and Engineering Department,
and Planning and Development Department maintain employees with GIS mapping
skills that can used to analyze and display private-sector or community lifeline data
and essential elements of information (EEIs) via dashboards, maps, and
storyboards.
Additional details on information collection, analysis, and dissemination can be
found in the following documents: Warning and Alert Annex, Communications
Annex, Emergency Public Information Annex, and the Baytown EOC
Standard Operating Guide (SOG).
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Administration, Finance, and Logistics
Administration and Finance
Cost Documentation
Expenses incurred in carrying out private sector and community lifeline coordination
may be recoverable costs. Hence, the primary and support agencies will maintain
records of personnel and equipment used and supplies used during the activation of
this annex.
The primary and support agencies will track all costs related to community lifeline
and private sector coordination for proper
disaster finance and cost recovery.
The primary and support agencies will maintain an ICS-214 Activity Log to track
time and effort related to the incident; including cost for mutual aid services. The
primary and support agencies provide all documentation related to the incident to
the Documentation Unit within the EOC Planning Section upon closure of the
incident. For more details on finance processes and procedures, please refer to the
Disaster Finance and Cost Recovery Annex.
Records and Records Preservation
The IC shall ensure the maintenance of accurate logs recording significant
operational activities (ICS 211 and ICS 214), the commitment of resources, and
other information relating to emergency response and recovery operations. See the
Emergency Management Annex (ESF 5), for more information on the types of
information that should be recorded in activity logs.
Essential records should be protected from the effects of a disaster to the maximum
extent feasible. Should records be damaged during an emergency situation,
professional assistance in preserving and restoring those records should be
obtained as soon as possible.
Logistics
Refer to the Logistics and Resource Management Annex (ESF 7) for more
details on logistics, resource management, and mutual aid processes and
procedures.
Private Sector Organizations may be an invaluable resource during a major disaster
or incident with logistics and supply chain systems that exceed the local
jurisdictions capability. Baytown OEM will coordinate with these organizations to
ensure scarce resources are prioritized and allocated within the community via
strategic partnerships and mutual aid with private sector organizations.
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ESF 14 – 22
Plan Development and Maintenance
The Emergency Management Coordinator is responsible for developing and
maintaining this annex.
This annex will be reviewed annually and updated every 5-years in accordance with
the schedule outlined in the Basic Plan and Emergency Planning Standard
Operating Guide (SOG).
Training and Exercises
The training and exercises developed for this annex will be included in the city’s
Integrated Preparedness Plan (IPP).
Training
The Baytown OEM will maintain a NIMS Training Policy for all city employees
assigned to the Baytown Emergency Operations Center and offer regularly
scheduled Incident Command System (ICS)/ National Incident Management System
(NIMS) training courses to city employees.
Baytown OEM will schedule community lifeline and private sector coordination and
Liaison Officer training courses upon request by the Primary Agency, Support
Agencies, or other interested city employees or private sector organizations.
Exercises
Exercises shall be conducted to test this Annex and train personnel on the use of
this document. The exercise will include primary and support agencies assigned to
this Annex and the Baytown Emergency Operations Center (EOC). After the
exercise is completed the City shall record the following information:
• List of participants;
• Lessons learned via an After-Action Report (AAR); and
• Recommendations or changes to this annex via an Improvement Plan (IP).
The plan may be revised based on the exercise recommendations or after a real
flood incident.
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References
• DHS, Critical Infrastructure and Key Resources Support Annex, 2008.
• DHS, National Infrastructure Protection Plan (NIPP), 2013.
• FEMA, ESF #14 – Cross-Sector Business and Infrastructure Annex, 2019.
• FEMA, Community Lifelines Implementation Toolkit, 2.0.
• FEMA, Incident Stabilization Guide, November 2019.
• EMAP, Emergency Management Standard.
Appendices and Attachments
• Attachment 1 – Community Lifelines Components
• Attachment 2 – Community Lifeline Operational Status
• Attachment 3 – Baytown Community Lifelines
Attachment 1 – Community Lifelines Components
Attachment 2 – Community Lifeline Operational Status
Community Lifelines or Components operational status will be assessed using the
following color-scheme to indicate current conditions:
Significant Impact: Red
• Indicates there are severe challenges and obstacles hindering the essential
services and resources associated with the lifeline. Immediate attention and
resources are required to address the situation and restore functionality.
Moderate Impact: Yellow
• Indicates that there are disruptions or limitations to the delivery of normal,
pre-incident services and resources. The situation requires attention and
proactive measures to prevent further deterioration and ensure community
needs are met.
Minimal Impact: Green
• Indicates that the lifeline is functioning at pre-incident levels, with only minor
disruptions or limitations.
For Official Use Only (FOUO)
ESF 14 – 26
Attachment 3 – Baytown Community Lifelines
Community Lifelines Private Sector Organization Importance
Energy CenterPoint Energy
Fuel Stations
City of Baytown Fuel Depot
Baytown Public Safety Fuel Depot
GCCISD Fuel Depot
Contracted Fuel Services
Provides electricity and
natural gas services to
the City of Baytown,
general public, and
business community.
Fuel stations and depots
maintain fleets and
generators.
Food, Water and
Shelter
Baytown Area Water Authority
Baytown Public Works and
Engineering
Local Grocery Stores
Baytown Community Center
GCCISD Schools
American Red Cross
Ensures clean, safe water
for the city and processes
wastewater. Shelter
coordinated by OEM and
Parks Department.
Transportation Surface Transportation:
• Interstate-10
• State Hwy 146 (Fred Hartman
Bridge)
• State Hwy 99
Aviation:
• Baytown Airport
Rail:
• Union Pacific
Pipeline:
• Over 40 operators
Maritime:
• Houston Ship Channel
• Galveston Bay
• Cedar Bayou
Facilitates movement of
people and goods
Health and Medical Houston Methodist Baytown Hospital
BMC Baytown Hospital
BMC Freestanding Emergency
Department
Provides essential
healthcare services
For Official Use Only (FOUO)
ESF 14 – 27
Patients ER and Hospital
ClearSky Rehabilitation Hospital of
Baytown
16 Long Term Care Facilities
Baytown Health Department
Harris County Public Health Services
Chambers County Health Department
Communications Local internet and phone service
providers
Baytown 911 Communications Center
Baytown ITS Department
Facilitates communication
for residents and
businesses
PSAP / Dispatch
Radio / Telephone / Cell /
Data
Safety and Security Baytown Police Department
Baytown Fire Department
Goose Creek CISD Police Department
Lee College Security Department
Harris County Constable Precinct 3
Chambers County Constable Precinct
6
Acadian Ambulance Baytown
Provides emergency
response and public
safety, and contracted
services
Hazardous Materials Oil and Gas Industry
Chemical Industry
Storage and Warehouse Industry
Tier II and Toxic Release Facilities
All modes of
transportation throughout
community.
For Official Use Only (FOUO)
ESF 14 – 28
Local Grocery Store Locations
STORE STORE
# ADDRESS City ZIP
Aldi 68 5521 Garth Rd Baytown 77521
Food Town 4 1700 Decker Dr # 1 Baytown 77520
Food Town 14 3517 N Main St Baytown 77521
Food Town 8 3002 W Baker Rd Baytown 77521
Fresco Market 01 100 N Alexander D Baytown 77520
HEB Mont Belvieu 741 13401 I-10 East Baytown 77523
HEB Baytown 742 6430 Garth Road Baytown 77521
Joe V 645 3500 Garth Road Baytown 77521
Kroger 150 6315 Garth Road Baytown 77521
Kroger 974 1700 N Alexander Dr Baytown 77520
La Michoacana 69 4910 N Main Ste A Baytown 77521
La Michoacana 21 2312 N Alexander Dr Baytown 77520
La Sabrosa Meat Market 01 400 N Alexander Dr Baytown 77520
Target Store T-0887 4510 Garth Rd Baytown 77521
Walmart Supercenter 194 4900 Garth Rd Baytown 77521
Walmart Distribution 7628 4554 Oscar Nelson Junior
Drive Baytown 77523
Walmart Supercenter 2439 8700 N Hwy 146 Baytown 77523
For Official Use Only (FOUO)
ESF 14 – 29
Major Employers and Private Sector Organizations
Private Sector Organization Address
ExxonMobil 5200 Bayway Dr, Baytown, TX 77520
Borusan Mannesmann 4949 Borusan Rd, Baytown, TX 77523
Walmart Distribution Center 4554 Oscar Nelson Jr Dr, Baytown, TX 77523
JSW 5200 E Mc Kinney Rd, Baytown, TX 77523
Chevron Phillips Chemical Company 9500 East Fwy, Baytown, TX 77521
Enterprise Products Partners L.P. 4225 Decker Dr, Baytown, TX 77520
IKEA Distribution Center 4762 Borusan Rd, Baytown, TX 77523
Covestro 327 FM 565, Baytown, TX 77523
Houston Methodist – Baytown Hospital 4401 Garth Rd, Baytown, TX 77521
The Home Depot Distribution Center 6115 FM 1405, Baytown, TX 77523
CenterPoint Energy Baytown Service Area 333 Ward Road, Baytown, TX 77520
For Official Use Only (FOUO)
ESF 14 – 30
Attachment 4 – EHCMA Industry Status Board
East Harris County Manufacturers Association
Industry Status Board and Hurricane Status Reporting System
http://ehcmaem.com/login.asp